WORLD TRADE  
ORGANIZATION  WT/CFMC/W/45 
14 October 2008 
 (08-4908) 
 Original:   French 
  
 
DIRECTOR-GENERAL'S CONSULTATIVE FRAMEWORK 
MECHANISM ON COTTON 
 
Cotton Projects
 
 
Communication from Benin 
 
  The following communication, dated 7 October 2008, is being circulated at the request of the 
delegation of Benin. 
 
_______________ 
 
 
PROGRAMME FOR UPGRADING AND MAINTAINING 
1,050 KM. OF RURAL ROADS 
 
 
I. OVERVIEW 
1. Benin's economy is mainly based on the primary sec tor, in which agriculture plays a key role;  
ending the isolation of rural areas, particularly pro duction zones, and lowering the cost of transport 
make a significant contribution to the economic gr owth that has to underpin poverty reduction. 
2. In this particular context in which promoti ng agricultural activities constitutes the principal 
form of agricultural development, ending the isolation of production zones becomes a priority. 
A. P
HYSICAL AND HUMAN CONTEXT  
3. The whole of the Republic of Benin is situated in the intertropical zone between the Equator 
and the Tropic of Cancer, more precisely between the parallels 6° 30' and 12° 30' latitude North, on 
the one hand, and 1° and 3° 40' longitude East on the other, and it is part of West Africa. 
4. It covers an area of around 114,763 km., with  a width varying from 125 km. (along the coast) 
to 325 km. (latitude of Atacora). 
5. Benin has common borders with Niger and Burkin a Faso to the north, Nigeria to the east, 
Togo to the west, and abuts the Atlantic Ocean to the south.  Niger, Burkina Faso and Togo, like 
Benin, are members of the WAEMU. 
6. Benin is a country of transit and its privilege d geographical situation in West Africa makes it 
Niger's natural port of access to the sea and a port of  transit for Nigeria and for landlocked countries 
such as Burkina Faso, Chad and Mali. WT/CFMC/W/45 
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  7. Benin's political capital is Porto-Novo;  Cotonou is its economic centre and most populated 
city, and consequently the seat of Government. 
8. According to recent censuses, Benin's populatio n rose from 2,100,000 inhabitants in 1961 to 
4,855,349 in 1992 and then to 6, 769,914 according to the February 2002 population census.  The 
population is increasing at an average annual rate of around 3 per cent;  population density is some 
59 inhabitants/km
2 over the country as a whole. 
B. ECONOMIC ENVIRONMENT  
9. For almost two decades Benin's economy obeyed the rules of a command economy, but since 
1990 there has been a profound transformation, mainly as a result of the change in economic policy following the introduction of the principles and rules of a liberal economy.  These changes led to a 
remarkable performance at the economic level with  average annual growth rates of 4.2 per cent from 
1990 to 1995 and 5.3 per cent from 1996 to 2002.  In  1998 and 1999, however, the growth rate was 
lower, 4.5 per cent and 4.7 per cent, respectively, because of the energy crisis, which caused a decline 
in output in the industrial and services sectors. 
10. Over the period 1993 to 2002, there was little cha nge in the respective shares of the various 
sectors in real GDP. 
11. The primary sector accounts for close to 36 per cent of GDP formation on average and 
employs more than 60 per cent of the working population.  Its main components are the food crop subsector (maize, cassava, beans, yams, sorghum, f onio) and cash crops, chiefly cotton.  This sector 
has seen the highest rate of growth.  Nevertheless , it is dependent on meteorological factors and is 
only the second largest contributor to the GDP. 
12. The industrial sector is mainly composed of mining and quarrying, the food processing 
industry, energy and other industries and only accounts for 11 to 15 per cent of the GDP;  with an average of 14.2 per cent;  it is seen as the weakest sector in Benin's economy. 
13. Viewed as the leading sector in Benin's economy , the services sector accounts for close to 
50 per cent of GDP formation.  Trade is respons ible for almost 18 per cent of the GDP and the 
transport subsector for 7.4 per cent. 
14. The performance of Benin's economy is weak because of a number of constraints related, 
inter alia , to the inadequacy and low quality of the ec onomic and social infrastructure, lack of 
development in the national business sec tor and insufficient skilled labour. 
C. P
OVERTY REDUCTION STRATEGY  
15. The Poverty Reduction Strategy Paper (PRSP), which covers the period 2003-2005, is based 
on the following pillars:  (i) strengthening the ma croeconomic framework over the medium term;  
(ii) development of human capital and environm ental management;  (iii) strengthening good 
governance and institutional capacities;  and (iv) pr omoting employment and building the capacity of 
the poorest sectors of the population to participate in decision-making processes and in production. 
16. The goal of the PRSP is to achieve stronge r economic growth by focusing on Benin's 
comparative advantages, particularly in the areas of agriculture and transport.  As far as road transport 
is concerned, the PRSP states that one of the objectives is "to develop routes linking the rural towns with production areas, maintain them, and reduce th e isolation of populations  through the extension 
and maintenance of feeder roads".  Organizing the ma intenance and building of rural roads is cited as 
one element in expanding agricultural production.  WT/CFMC/W/45 
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  D. DECENTRALIZATION  
17. The principle of decentralization was already present in the Constitution of 
11 December 1990 (Title X).  It was necessary, ho wever, to wait until 15 January 1999 - when four 
laws on decentralization were enacted (a fifth one was adopted in March 2000) - and the local 
authority and municipal elections of 1 December 2002,  to see the reform of territorial administration 
become a reality. 
18. Benin is divided into 12 departments, which contain 77 local authorities, three of them with 
special status, namely, Cotonou, Porto-Novo and Parakou. 
19. The local authority elections held in Decemb er 2002 saw the creation of 77 autonomous local 
authorities with the election of local councils and ma yors.  The decentralization legislation gives local 
authorities more responsibility for local development a nd for drawing up sectoral policies.  In order to 
be able to fulfil their responsibilities,  they must have the following resources:  
(a) Human:  local officials, current and new local employees; 
(b) Material:  public works infrastructure a nd equipment, including the assets of the 
former sub-prefectures and urban areas; 
(c) Financial:  the levies and taxes currently in  force, the local development tax, the 
transfer of national revenue (share of VAT on vehicles, tourism tax on mines and 
quarries), the income received for providi ng local services, the income from assets, 
subsidies and State grants and/or fro m any other natural or legal persons.  
20. Following their induction in February 2003, the major challenges facing local officials were 
therefore:  
(a) To set up an administration capable of promoting development;  to draft local 
development planning documents and put them into practice; 
(b) to increase the financial resources needed by  local authorities to implement the local 
development action identified.  
21. A local administration was set up in all the local  authorities, even though human resources in 
general remain inadequate in terms of quantit y and quality, particularly as regards planners. 
22. As required by Article 84 of the Law on the organization of local authorities in the Republic 
of Benin, most authorities have a development planning document. 
23. The Association Nationale des Communes du Bénin  – ANCB (National Association of Local 
Authorities in Benin), comprising all local authoriti es, was set up in 2003 and provides a framework 
for consultation among all the local authorities.  Sect oral decentralization, on the other hand, has not 
yet become operational in terms of national directives.   So far very few Ministers have adapted their 
action to the new context of decentralization. 
24. As regards the agricultural sector, local aut horities are responsible for defining policy and 
agricultural strategy in their own area, in conform ity with the national policy and strategy.  Local 
authorities do not play any direct role in agricultura l production;  this is the responsibility of farmers' 
associations and special groups, but the local authority  has to put in place the infrastructure and public 
works needed to lift the constraints on productio n and marketing with a view to agricultural 
development at the local level and povert y reduction among the most vulnerable groups. WT/CFMC/W/45 
Page 4  
 
  25. The projects underpinning the PRS are based on a fundamental principle, namely, delegating 
the ownership of works to grassroots communities or producers' organizations as appropriate.  This 
responsibility currently incumbent upon local authorities is in practice exercised by farmers' associations or grassroots communities. 
26. As far as road transport is concerned, Ar ticle 88 of Law No. 97-029 of 15 January 1999 
provides that "In the case of roads that are not specifically the responsibility of other entities or 
bodies, the local authority is responsible for the building and upkeep of roads, rural roads and public works on its territory;  … ". 
E. S
OCIO ECONOMIC ENVIRONMENT  
27. The socio economic actors most concerned by the necessary upgrading of rural roads are:  
farmers, livestock breeders, traders and transporters .  The first two groups live permanently in rural 
surroundings while the other two only come to ma rkets or sometimes tran sport large quantities of 
food products that have already either been stoc ked or are on the spot, or move out seed cotton.  
(i) Situation and role of each social group 
28. Almost 70 per cent of Benin's total population is co mposed of farmers.  They need rural roads 
to move out their surplus food products and their cotton production, but also to buy manufactured 
staple goods and inputs.  The rural roads also allow them to reach basic social  facilities (dispensaries, 
schools) and to feel that they are full members of the national community.  They are therefore those most affected by the repair and upkeep of rural ro ads and are ready to take part in any programme 
dealing with this problem. 
29. Theoretically, the food products sold are the surplus remaining after the farmers' own 
consumption has been met.  In practice, however, it can often be seen that the need for cash and the 
difficulty of conserving certain products (early  yams, maize) means th at these products when 
harvested are sold to small traders who come to pick them up on the spot in the villages. 
30. The isolation and the poor state of rural road s in certain areas during the rainy season incite 
farmers to sell their products while it is still possibl e to transport them and while traders can reach 
their villages.  Selling some of the food crop imme diately it is harvested also provides the necessary 
financial resources to pay the labour recruited to pick  cotton.  Farming families then often have to buy 
food when it is in short supply and prices are at their highest level. 
31. There are two types of livestock breeder:  t hose who own their own animals and those who 
raise the animals belonging to others.  The traditional extensive type of breeding is followed.  Broadly 
speaking, two principal systems can be seen:  the ag ro-pastoral system, which is the most widespread, 
and the sedentary system, i.e. draught animals. 
32. Starting some years ago with a few plants grown around the animal compounds, livestock 
breeders turned with success to growing cotton.  When the CFA franc was devalued, the market for 
meat became more attractive in order to replace im ported meat.  Transporting animals to market or to 
slaughterhouses also requires rural roads that can be u sed throughout the year.  Animals are also often 
transported on the hoof through the bush. 
33. Traders form a pyramid whose basis is com posed of numerous women with a minimal 
amount of capital who go from market to market to  buy small quantities of food products, which they 
then supply directly to consumers in cities or to  intermediaries who, in turn, supply wholesalers or 
exporters.  They frequently take advantage of th e price difference between one place and another, 
sometimes the result of transport problems.  The same situation can be seen in the case of sale of  WT/CFMC/W/45 
 Page 5 
 
 
  manufactures and staple goods.  This trade is conducte d in markets held on specific days, either every 
five days or weekly.  The timetable for markets is de termined in such a way that they never overlap in 
the same area. 
34. The price of the various products on offer depe nds above all on supply and demand, which is 
often related to ease of transport and how accessible th e villages are.  There is often a relationship of 
loyalty between sellers and buyers, sometimes becau se of the credit given.  A particular family, for 
example, will only sell products to one particular trader. 
35. The transporters who travel along rural roads usually only employ small goods vehicles (cars, 
vans, 5- or 10-tonne trucks).  Th eir task is to ensure the trans port of production factors and goods, to 
help in moving agricultural products and to transpor t passengers (both men and women traders) to the 
various rural markets.  Their vehicles can also be re nted privately in order to collect large volumes of 
food crops.  They are an indispensable link between the rural and urban worlds.  During the dry season, rural roads are used by large trucks  to transport cotton and deliver inputs. 
(ii) Producers' organizations 
36. Producers are organized into Groupements Villageois  – GV (village-level groups), Unions 
Sous-préfectorales des Producteurs  – USPP (producers' unions in sub-prefectures), Unions 
Départementales des Producteurs  – UDP (producers' unions in departments), a large number of other 
associations at the local level, the Crédit Agricole Mutuel – CAM (agricultural mutual fund), 
comprising Caisses Locales de Crédit Agricole Mutuel – CLCAM (local agricultural mutual funds) 
within the Union Régionale  – UR-CLCAM (regional union) and federated in the Fédération 
Nationale  – FECECAM (national federation). 
F. M
ANAGEMENT AND CAPACITY -BUILDING IN LOCAL AUTHORITIES  
37. Competence will be transferred to the local au thorities and the State will play a regulatory 
role through the Conseil National de Transport Rural – CNTR (National Rural Transport Council).  
The following action needs to be taken: 
• Gradual delegation of respons ibility for public works and contracting to the local 
authorities; 
• introduction of a road data bank within the Bureaux des Services Techniques des 
Communes – BST (local technical services offices); 
• training of personnel in the BSTs and supply of various types of equipment;  support 
for the local authority and central structur es with a view to building their capacity. 
G. STRATEGY IN THE TRANSPORT SECTOR  
38. In order to allow the movement of persons a nd goods needed to create national wealth and 
reduce poverty, Benin has a transport system in  which the modes most commonly used are the 
following by order of importance:  roads, railways,  rivers and lagoons for domestic transport;  sea and 
air, and to a lesser extent also rivers and lagoons, fo r international transport.  Road transport is the 
principal mode in Benin.  Almost 93 per cent of  passengers and 73 per cent of goods are carried by 
road. WT/CFMC/W/45 
Page 6  
 
  39. The different modes of transport together account for around 7.5 per cent of GDP formation.  
The structure of demand for transport has three special features, namely: 
(a) Domestic trade between urban centres and rural areas (production areas); 
(b) transit for trade and links with countri es having common borders with Benin; 
(c) transport for the export of cash crops, mainly cotton because of the annual volume of 
production. 
40. The main objectives of the development strategy  for the transport sector adopted in 1993 and 
then updated in 1996 are: 
(a) To support production sectors and contribute towards economic growth; 
(b) to help in reducing poverty in urban and ru ral areas (ending isolation, access to basic 
services, serving production areas, direct and indirect job creation, … ); 
(c) to allow various actors in the sector to play a role in those areas where they can be the 
most effective. 
41. As far as roads and road transport are concerne d, the strategy's objectives can be summarized 
as follows: 
(a) To prepare and implement a national progr amme for ending isolation nationwide so 
as to improve Benin's road links with  neighbouring countries and enhance the 
competitiveness of the Beninese corridor; 
(b) to ensure the conservation and mainte nance of the infrastructures set up; 
(c) to introduce a mechanism for financi ng road maintenance that guarantees the 
mobilization of the necessary funds; 
(d) to increase the private sector's participati on in road maintenance while at the same 
time restricting the role of the public author ity;  to promote SMEs involved in road 
maintenance and to associate users and beneficiaries in decision-making in relation to the development of the road subsector; 
(e) to build the capacity of the road authorities; 
(f) to ensure the development and better manage ment of the network of rural roads, as 
well as the mobilization of adequate financ ial resources, and to transfer responsibility 
for their management and financing to the users/beneficiaries. 
H. A
DVANTAGES  
• Encourages beneficiaries to set up joint associations for the management of rural 
roads and strengthens such structures ; 
• makes beneficiaries aware of the proble ms of rural roads and State policy and 
provides them with training, as well as developing local technical prowess;  WT/CFMC/W/45 
 Page 7 
 
 
  • puts in place an adequate financial me chanism so as to cover needs more 
satisfactorily;  and 
• involves beneficiaries closely in identifying the roads to be developed. 
I. LINKAGE WITH OTHER STRATEGIES  
42. The rural transport strategy will support strate gies in other economic and social sectors in 
Benin with a view to achieving the Millennium De velopment Goals and the aim of reducing poverty. 
(i) Agricultural development sector 
43. The Government's strategy in the agricultural sector aims to remove constraints so as to 
allow:  (i) an increase in the agri cultural sector's contribution to the GDP;  (ii) diversification of 
Benin's agriculture and better supplies of inputs to lo cal industries;  (iii) raising the level of farmers' 
incomes by promoting their participation in rural production;  and (iv) f ood and nutrition security. 
44. The five (5) major programmes adopted include the following: 
(a) The rural infrastructure, in particular, the organization of work to maintain and build 
rural roads; 
(b) support for the development of agricultural markets requiring, inter alia , the 
organization of work to develop roads serving rural areas. 
45. It would appear that achieving the objectives of the agricultural sector strategy depends to a 
large extent on the performance of rural transport. 
(ii) Health sector 
46. The population's state of health is of concern to  the Government, which is pursuing its efforts 
to lower the cost of health care and to facilitate access to health facilities.  It has been found that 
people living in areas where there are no rural roads find it difficult to transport sick persons to 
health-care units. 
(iii) Education sector 
47. Since 1995, Benin's education system has made pr ogress as a result of the combined efforts of 
the State, the private sector and civil society.  D espite the improvements, educational opportunities are 
still inadequate in rural areas where students ofte n have to walk or cycle for long distances. 
(iv) Drinking water sector 
48. The Government has made guaranteed access to drinking water for the population a priority 
in its poverty reduction strategy.  The poor state or  the absence of rural roads is an obstacle to 
implementing strategy in this sector. 
J. RELATIONSHIP TO THE NATIONAL DEVELOPMENT PLAN  
49. This programme fits in perfectly with the Gove rnment's action plan.  Indeed, it is one of the 
components of the document containing the "Policy and strategic action plan for developing 
agriculture in the Republic of Benin".  It is also one of the main pillars of the "Strategic plan for WT/CFMC/W/45 
Page 8  
 
  revival of Benin's agricultural sector", the Governme nt's basic document in this sector, drawn up for a 
period of ten (10) years (2006-2015). 
II. OBJECTIVE OF THE PROGRAMME 
50. The overall objective of the programme is to en sure the continuity of the infrastructure 
established in order to help in reducing poverty in rural areas. 
A. S
PECIFIC OBJECTIVES OF THE PROGRAMME  
• Effective takeover of the management of the rural roads network by the beneficiaries; 
• harmonized development of the rural roads ne twork and adapting it better to the need 
to end isolation and improve transport in rural areas; 
• identification and definition of an appropriate mechanism to mobilize ongoing 
resources for the financing of the existing road network. 
III. IMPLEMENTATION STRATEGY 
51. After more than two decades of activities dur ing which several actors built roads, an 
evaluation undertaken in the mid-1990s highlighted the shortcomings, thereb y inciting the authorities 
to prepare a rural road strategy, which has likewise shown its limits. 
52. The rural transport strategy adopted in January 2006 is based on effective participation by the 
beneficiaries;  its aim is the effective ownership of  infrastructure by the beneficiaries and ending the 
isolation of production areas.  The basic objectives of this strategy include the following: 
(a) Improving routes that allow rural populations access to the socio economic 
infrastructure so as to develop production; 
(b) maintaining and preserving the network through a mechanism that guarantees 
ongoing financing for its upkeep. 
A. OUTLOOK 
53. The programme outlined below is part of the framework for improving access to production 
areas in order to facilitate the supply of agricu ltural inputs as well as production.  It affects all 
departments and should help to support the devel opment and/or emergence of new and promising 
branches. 
54. As a result of decentralization, the local aut horities themselves are the project managers and 
the institutional beneficiaries, but in close asso ciation with grassroots communities.  The State will 
help the project managers to specify the terms, ru les and standards that will form the legal basis for 
action in this area. 
55. The plan is for 1,050 km. over four years.  This is a relatively modest figure for the following 
reasons: 
(a) The plan's priority is agricu ltural roads and it is complementary to planning in other 
public works and transport sectors intended to facilitate access to socio-community 
services;  WT/CFMC/W/45 
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  (b) SMEs only have very lim ited capacity for action because of their low level of 
equipment, financing and organization. 
B. DURATION OF THE PROJECT :  FOUR YEARS (2008-2011) 
56. The schedule for practical implementation is contained in Annex 4. 
C. IMPLEMENTATION PHASE  
 Title of the project: Programme for upgrading and maintaining 1,050 km. of rural roads. 
  Period:   1 January 2008 to 31 December 2011. 
  Technical assistance : Recruitment of an international engineering firm. 
 
D. B
ASIS AND INSTITUTIONAL PROVISIONS  
57. The programme comes under the umbrella of the Rural Engineering Department, a national 
technical department belonging to the Ministry of Agriculture, Livestock and Fisheries (MAEP). 
58. Decree No. 2007-283 of 16 June 2007 establishes an institutional framework that operates 
from the national to the local levels. 
(i) National level 
59. The CNTR, which includes a wide range of o fficials and local partners, is a national 
framework for consultation and coordination of activiti es to develop rural roads and its main tasks are 
the following: 
(a) To ensure the coordination of all action for the development and upkeep of rural 
roads in compliance with national policy; 
(b) to incite the beneficiary populations to s upport the principles for action in relation to 
rural roads and to ensure compliance with th e said principles by all parties concerned;  
to ensure the integration of various road  programmes into the strategy defined; 
(c) to inform the beneficiary populations and take into account their comments on the 
programmes; 
(d) to strengthen the programmes developed at th e local level and integrate them into the 
national programme on the basis of the criteria defined; 
(e) to ensure that the programmes submitted are eligible; 
(f) to allocate the loans by the State and ot her internal and external sources;  and 
(g) to follow up and evaluate pilot projects, learn from the experience gained in such 
Projects and make relevant recommendations  for their generalized dissemination. 
60. The Cellule des Pistes Rurales  – CPR (Rural Roads Unit) acts as the permanent secretariat of 
the CNTR in addition to its t echnical functions within the Direction des Routes et Ouvrages d'Art  – 
DROA (Department of Roads and Engineering Works).  In this connection, it is responsible for the 
following: WT/CFMC/W/45 
Page 10  
 
  (a) Administering the CNTR; 
(b) preparing meetings of the CNTR, particular ly elements for decisions to be submitted 
to it based on programmes put forward by partners; 
(c) liaison between the CNTR and the departmental committees; 
(d) maintaining and filing the CNTR's  information and data;  and 
(e) preparing and publishing information and studies on the national network of rural 
roads and routes. 
61. Following the recent reorganization of the Mini stry of Public Works and Transport (MTPT), 
the CPR has become the Direction des Pistes Rurales  – DPR (Rural Roads De partment) within the 
Direction Générale des Travaux Publics – DGTP (General Department of Public Works), which 
replaced the DROA. 
(ii) Local level 
62. A Comité Communal de Transport Rural  – CCTR (Local Rural Transport Committee) has 
been set up in each local authority to follow up the programmes and decentralization of activities by 
the beneficiary associations concerned. 
E. D
EFINITION OF ROAD BUILDING WORK  
(i) Road building strategy to be envisaged 
63. Bearing in mind the trends highlighted and taking into account the needs, the quantitative 
objective of the strategy in terms of building traditional rural roads could be from 350 to 400 km. 
annually on average.  Because of the difficulty of maintaining the roads upgraded, however, it does 
not appear appropriate to continue expanding the netw ork of rural roads at the same pace.  A strategic 
objective of 300 km. annually on average would enable  needs to be met while at the same overcoming 
maintenance problems.  The rules set out in the Gl obal Strategy for Rural Roads (document SRDR – 
1994), drawn up as part of Benin's transport strate gy and endorsed by donors in Cotonou in October 
1993, have been adopted as the guiding principle for this study. 
64. Rather than adopting a traditional approach  to road building using a homogenous and 
continuous standard throughout the network, it is planned to implement a policy of eliminating "hot 
spots" so as to build a more direct network of rura l roads and thus end the isolation of a larger number 
of areas. 
65. The planning principles envisaged in this  study are based on the following strategic 
principles: 
(a) As a priority, to build roads to villages and farms whose efforts to market their 
production are most hampered by roads being cut off; 
(b) to ensure an adequate average level of se rvice on rural roads through investment that 
is proportional to the real demand for tran sport and the traffic conditions for the 
vehicles used; 
(c) to allocate investment in terms of both area and time to satisfy the largest number of 
producers and to generate more value added;  WT/CFMC/W/45 
 Page 11 
 
 
  (d) to ensure that the work carried out  is on a permanent basis;  and 
(e) immediately following investment, to put in place a system for the upkeep of the road 
with the participation of beneficiaries. 
66. The action to be taken for rural roads includes the following: 
(a) Eliminating traffic hot-spots and building the indispensable engineering works; 
(b) harmonizing the level of service by partial improvement of the surface;  and 
(c) immediately the programme begins, creati ng a fund for the upkeep of rural roads 
responsible in this case only for the annua l upkeep of the rural roads covered by the 
programme. 
(ii) Technical road-building standards 
67. Technical standards have been defined in orde r to ensure that the building and upkeep of 
roads is homogenous while at the same time profita ble and that genuine transport needs are met. 
68. The standards should be adapted to the t opographic, geomorphological and hydrological 
environment through which the road goes so that it can be used in an economical way.  The model 
profile for building roads serving rural areas must be observed. 
69. The list of standard public works, engineering and drainage structures frequently encountered, 
is given in the annex.  This list is neither exhaustive nor restricted and will have to be adapted to the 
programme's real needs. 
(iii) Definitions of the categories of road-building works 
70. For each rural road, several scenarios for gradua l investment have been envisaged so as to 
assess the economic profitability of each solution and deci de which is the most advantageous.  In this 
connection, a category of works for dealing w ith hot-spots comprises two sub-categories: 
(i) A/  Treatment of hot-spots:  Roadworks.  These include earthworks, grading, drainage 
and minor sanitation works; 
(ii) B/  Treatment of hot-spots:  Building wo rks.  These include the engineering works 
themselves:  span bridges, concrete slab bridges or through bridges ...  
(iv) Principles for action 
71. The following principles for action should be observed: 
• The local authorities are responsible for mana ging the network of rural roads situated 
in their respective territories; 
• investment in the network is programme d by the local authorities within the 
framework of the annual investment pl ans/programmes that are part of the Plan de 
développement communal  – PDC (Local Development Plan); 
• the population and various local stakeholders  must participate in all phases of the 
planning and implementation cycle; WT/CFMC/W/45 
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  • criteria for prioritization and the choice of investment are drawn up and implemented 
in practice; 
• financing the upkeep of the network of ru ral roads is the responsibility of local 
authorities either directly or through structures approved by them; 
• local authorities may receive annual subsidi es from the State for building certain parts 
of the network or for carrying out special maintenance operations, particularly those 
that require the use of mechanized technology; 
• the State ensures the gradual transfer of competence and resources to the local 
authorities within the framework and in conf ormity with the decentralization policy; 
• the desirable and possible levels of road-building on the network must be the result of 
a compromise between the needs expressed by the population as regards the level of 
service and constraints in terms of maintenance capacity and decentralized management.  The treatment of hot-spots is one of the foremost principles for action; 
• wherever local conditions permit, th e HIMO method is to be adopted; 
• the implementation of investment and ma intenance programmes throughout the rural 
network is the responsibility of the local aut hority, which may delegate all or some of 
its responsibilities as the owner and contractor of the works; 
• all the routes on the upgraded network will be classified in terms of the local network 
after removing them from the State network classification, where necessary, and will be transferred to the local authority in conformity with the texts in force; 
• a national entity composed of the main stak eholders is responsible for direction and 
general supervision;  and 
• an operational technical structure is responsible for coordination and close 
supervision of the various programmes at the local authority level. 
(v) Follow-up/evaluation mechanism 
72. Although a certain number of the procedures pr oposed for the implementation of the rural 
transport strategy have already been applied in the pilot projects for the rural roads strategy, the 
changes that have taken place in the implementati on context make it necessary to carry out some tests 
or demonstrations before making any genera lization.  This applies to the following: 
(a) Planning and financing of rural roads; 
(b) promotion of intermediate modes of transport;  and 
(c) putting in place transport service activities. 
73. Before starting to implement the strategy, theref ore, it will be necessary to have an effective 
system for its follow-up/evaluation (and for learning from experience).  For this purpose, a mechanism based on a list of key indicators is pla nned.  On the basis of an analysis of these 
indicators, reports will be publis hed at different junctures.  WT/CFMC/W/45 
 Page 13 
 
 
  74. The mechanism will be composed of two subs idiary systems, namely, arrangements for 
collecting and updating data on im plementation and a subsidiary system of ongoing evaluation and 
guidance for implementation. 
75. The arrangements for collecting and updating im plementation data will be the responsibility 
of a local consultant recruited through a competition and with experience in the area of transport.  The 
consultant will work under the responsibility of the DGR and the supervision of the CNTR.  He will 
provide the DGR with a monthly report on activities.   This report will describe the implementation 
activities and the problems encountered, the results ac hieved and recommendations for the next stage. 
76. Every four months, an international consulta nt will conduct an external evaluation mission 
and, based on the work of the national consultant and in consultation with the DGR, this will enable 
the following: 
(a) Changes to be made to the strategy's procedures and methods; 
(b) procedures that are definitively relevant a nd generally applicable and conditions for 
their application; 
(c) updating of performance indicators for implementation; 
(d) learning materials and tools to be introduced or improved;  and 
(e) all comments and proposals on improvements e ither to the strategy itself or to the 
way in which it is being implemented. 
(vi) Institutional framework and guidelines for organizing the programme 
77. A number of State entities and organizations are concerned by the rural roads system, both 
road-building programmes and infrastructure main tenance.  The MAEP is the owner of the 
programme. 
Central structure of the MAEP  
 78. Benin has a MAEP with central departments as follows: 
(a) The Direction de la Programmation et de la Prospective  – DPP (Programming and 
Forecasting Department) will play an active role in the programme through its 
analysis and sectoral forecasting, projects  and technical coopera tion, and statistical 
services; 
(b) the DGR is involved in the rural ro ads programme.  It combines the Services de la 
Construction et Desserte Rurales  – SCDR (Rural Construction and Facilities 
Services), Aménagements Hydroagricoles  – SAHA (Hydroagricultural Planning) and 
Mécanisation et Technologies Appliquées  – SMTA (Mechanization and Applied 
Technology) services.  The SCDR organizes the preparation and implementation of works under the programme on behalf of the MAEP; 
(c) the DPLR is responsible for following up the development of rural institutions and 
producers' organizations and proposing measures to boost their development. WT/CFMC/W/45 
Page 14  
 
  Decentralized organization of the MAEP
 
 79. In each department, the MAEP is represented by a Centre Régional pour la Promotion 
Agricole – CeRPA (Regional Agricultural Promotion Centre),  which is headed by a Director General. 
80. The CeRPA has departments responsible for administration and finance, outreach 
programmes and support for farmers' associations , programming, follow-up and evaluation, planning 
and rural public works (DAER). 
IV. COST OF THE PROGRAMME 
81. The cost of the project based on the hypotheses below is CFAF twelve billion four hundred 
and forty-nine million one hundred and thirty-t wo thousand (CFAF 12,449,132,000) excluding tax, 
broken down as follows: 
Calculation hypotheses
 
 
(a) Studies:  CFAF 350,000/km. 
(b) Planning/construction work:  CFAF 10,500,000/km. 
(c) Technical assistance: 
• 10 months/year for four years for an expatriate expert, civil engineer, at 
CFAF 8,500,000/month; 
• One (1) senior technician, site mana ger for 25 km. of rural roads for 
10 months. 
(d) Lump sum of CFAF 3,900,000 per local authority benefiting from the programme at a 
rate of 25 km. per local authority (public works = CFAF 1,500,000;  CFAF 800,000 annually for operations) to support local au thorities in setting up and operating their 
technical services. 
(e) Support for government services: 
• Basic equipment:  travel and computer equipment:  CFAF 50,000,000; 
• Fuel:  50,000 km/year for 4 years; 
• Mission expenses:  one (1) official x 10 days/month x 10 months/year x 3 
years and one (1) driver; 
• Office supplies:  CFAF 2,000,000/year. 
(f) Follow-up/evaluation: 
• Basic computer equipment:  CFAF 6,000,000; 
• Fuel:  72,000 km/year for 4 years; 
• Mission expenses:  Two (2) officials x 5 days/month x 12 times/year x 4 
years and one (1) driver;  WT/CFMC/W/45 
 Page 15 
 
 
  • Office supplies:  CFAF 1,000,000/year. 
Programme costs (in CFAF millions, excluding tax, excluding duty) : 
 
-  Technical design:  CFAF 0.350 x 1,050 ............................  367,500 - Planning/building:  CFAF 10,500 x 1,050..........................  11,025 
-  Road maintenance (see anne x for details) ..........................  472,500 
-  Technical assistance (see annex for details) .......................  565,000 -  Support for local authorities (s ee annex for details) ........... 96,600 
-  Support for government services (see annex for details) ...  117,102 
-  Follow-up/evaluation (see a nnex for details) .....................  17,602 
 
 Total: 12,661,304 
 Participation by beneficiaries
 
 82. The evaluation of several pilot programm es, including those financed by the 
French Development Agency and the EU, shows that  participation by beneficiaries was 15 per cent, 
which is currently deemed too high  for rural populations bearing in mind that they are called upon for 
several other causes;  the trend is to reduce their pa rticipation and only take into account 5 per cent of 
the cost of the investment and manual upkeep.  Ov er a four (4)-year cycle, manual upkeep occurs 
twice: 
 Year 0: Repair/building 
 Year 1: Manual upkeep 
 Year 2: Regular upkeep  Year 3: Manual upkeep  Year 4: Mechanized maintenance (relaying the surface) 
 
83. Using such an approach and based on a manual upkeep cost of CFAF 450,000/km., 
participation by beneficiaries can be quantified at CFAF 472,500,000. 
84. Permanent resource mobilization will be introdu ced.  All (organized) agricultural branches 
will be asked to contribute in the same way as local authorities and grassroots communities benefiting 
from the investment. 
85. Action will cover the following: 
(a) A study of the contribution capacity of local authorities, beneficiaries and other 
potential contributors; 
(b) study on a national fund for maintaini ng the rural transport infrastructure; 
(c) creation of permanent resource mobilization mechanisms; 
(d) establishing in each local authority (or group of local authorities) a fund for 
maintaining the transport infrastructure;  and 
(e) establishing a Fonds National de Développement des Infrastructures de Transport 
Rural  – FNDITR (National Fund for the Development of Rural Transport 
Infrastructure). WT/CFMC/W/45 
Page 16  
 
  
ANNEX 1  
 
MAP OF BENIN  
 
REPUBLIC OF BENINNATIONAL ROAD NETWORK 
MINISTRY OF PUBLIC WORKS 
AND 
TRANSPORT 
DIRECTORATE-GENERAL OF PUBLIC WORKS
KEY TO ROAD SURFACES 
National Road Network ( Source:   Ministry of Public Works ) ROAD 
PORTO-NOVO 
PREFECTURE 
SUB-PREFECTURE 
DEPARTMENTAL LIMIT 
SECONDARY ROAD 
ORDINARY ROAD 
CARRIAGEABLE    RURAL    ROAD 
ORDINARY RURAL ROAD  WT/CFMC/W/45 
 Page 17 
 
 
  ANNEX 2 
 
COST ASSESSMENT (in CFAF thousands, excluding tax, excluding duty) 
 
 
 
A. TECHNICAL ASSISTANCE  
Number Title Unit Quantity Unit price Amount 
1 International expert, civ il engineer h/m 40 8,500 340,000 
2 Site manager h/m 300 750 225,000 
 Total 565,000 
 
 
B. SUPPORT FOR LOCAL AUTHORITIES  
Number Title Unit Quantity Unit price Amount 
1 Public works Local authority 42 1,500 63,000 
2 Operation Local authority 42 800 33,600 
 Total 96,600 
 
 C. S
UPPORT FOR GOVERNMENT SERVICES  
Number Title Unit Quantity Unit price Amount 
1 4 x 4 vehicle u 1 15,000 15,000 
2 Computer and other equipment edu 1 50,000 50,000 
3 Fuel litre 12,960 0.440 5,702 
4 Office supplies incidentals 4 5,000 20,000 
5 Mission expenses, officials days 480 45 21,600 
6 Mission expenses, driver days 240 20 4,800 
 Total 117,102 
 
 D. F
OLLOW -UP/EVALUATION  
Number Title Unit Quantity Unit price Amount 
1 Basic equipment u 1 3,000  3,000 
2 Fuel litre 8,640 0.440  3,802 
3 Mission expenses, officials days 160 45  7,200 
4 Mission expenses, driver days 80 20  1,600 
5 Office supplies incidentals 1 2,000  2,000 
 Total  17,602 
 
 
  WT/CFMC/W/45 
Page 18  
 
  ANNEX 3 
 
SUMMARY (in CFAF  Millions, Excluding Tax, Excluding Duty)  
 
 
Number Headings Amount 
1 Technical design 367,500 
2 Planning/building 11,025,000 
3 Road maintenance 472,500 
4 Technical assistance 565,000 
5 Support for local authorities 96,600 
6 Support for technical services 117,102 
7 Follow-up/evaluation 17,602 
 Total 12,661,304 
 
 
     
   WT/CFMC/W/45
 Page 19 
ANNEX 4 
 
SCHEDULE OF ACTIVITIES 
 
   
2008 2009 2010 2011 
No. ACTIVITY 
1st qtr. 2nd qtr. 3rd qtr. 4th qtr. 1st qtr. 2nd qtr. 3rd qtr. 4th qtr. 1st qtr. 2nd qtr. 3rd qtr. 4th qtr. 1st qtr. 2nd qtr. 3rd qtr. 4th qtr. 
1 Survey of rural roads                 
2 Technical design                 
3 CAD preparation                 
4 Invitation to bid and 
opening of bids                 
5 Award of contracts                 
6 Carrying out the 
work                 
7 Handing over                 
8 Maintenance                 WT/CFMC/W/45 
Page 20  
 
  ANNEX 5 
 
LIST OF STANDARD PUBLIC WORKS TO BE USED 
 
 
Drainage work
 
 
(a) Concrete conduit = 1.00 m. – length per work:  8 ml. 
(b) Single culvert 
• Road width = 5.00 m. between wheel tracks; 
• Span =1.00 m., and height = 0.60;  0.80;  1.00;  and 1.20 m.;  – span = 
2.00 m.;  height = 1.00 and 1.50 m.; 
 
(c) Double culvert 
• Width = 5.00 m.; 
• Span = 2 x 2.00 m.;  height = 1.00 and 1.50 m.; 
 Engineering works
 
 
(a) Concrete slab: 
• Width = 5.00 m between wheel tracks; 
• Access gradient:  < 6 per cent 
• Minimum depth for trench upstream and downstream:  1.00 m. 
 
(b) Single span bridge 
• Width = 5.00 m between wheel tracks; 
• Span = 2.50 m and height = 2.00 m; 
 
(c) Double span bridge 
• Width = 5.00 m between wheel tracks; 
• Span = 2 x 2.50 m;  height =-2.00 m; 
 
(d) Mixed steel beam and cement floor through bridge 
• Width girder = 5.00 m. between railings; 
• Variable spans of bays of:  6.00;  8.00;  and 10.00 m.; 
• Height piling and abutment in mas onry = 2.50;  3.00;  and 3.50 ID. 
 86. These standard works will be adapted to the topographic, geomorphological and hydrological 
environment of the areas through which the rura l road goes so as to be utilized economically. 
  WT/CFMC/W/45 
 Page 21 
 
 
  ANNEX 6 
 
STANDARDS AND SPECIFICATIONS 
 
 
(a) Level: 
• Minimum radius = 40 m. 
 
(b) Longitudinal section: 
• Maximum normal gradient = 8 per cent 
• Exceptional gradient = 10 per cent over a short distance 
 
(c) Cross-section: 
• Width for clearance = 8 m. 
• Width of platform = 5 m. 
• Width of lateral ditches = 2 m. 
• Depth of ditches = 0 to 1 m. 
• Pitch of the platform = 4 per cent 
• Gradient of embankment, filling material = 3/2 sandy materials 
 1/1 plain materials 
• Gradient of embankment, excavation material = 1/1 with all materials 
 
(d) Improved surface: 
• Width = 4.5 m. and junction at 5 m. on platform 
• Thickness = 8 cm. on foundation ground 
 12 cm. on plastic layer 
 
__________