20200630 – Terms of Reference and Scope of Services – ROAD SAFETY AUDIT EXPERTFEDERATED STATES OF MICRONESIA CLIMATE RESILIENT ROAD PROJECT
Terms of Reference and Scope of Services: Road Safety Audit Expert for the Department ofTransport, Communications and Infrastructure
ROAD SAFETY AUDITS OF SELECTED ROADS IN THE FEDERATED STATES OF MICRONESIA, &DEVELOPMENT OF A FIELD GUIDE FOR ROAD SAFETY AT ROAD WORKS THAT INCLUDES TRAFFICMANAGEMENT PLAN TEMPLATES FOR SAFE TRAFFIC CONTROL AT ROADWORKS

1. Introduction
The Government of the Federated States of Micronesia (FSM) is preparing the FSM Climate
Resilient Road Project (CRRP) to improve the climate resilience of FSM’s road network, with thesupport of the World Bank. The Project will include technical assistance and institutional
strengthening to improve the management of the road network in relation to potential climatechange impacts and will fund physical works on priority road assets to improve resilience to climaterelated hazards or events.
The FSM Government now wishes to use project preparation funds to employ a Road Safety
Audit (RSA) Expert to a) undertake a baseline and detailed design stage road safety audits for thecritical near-term priority roads and b) develop a field guide for road safety at road works that
includes traffic management plan templates setting out best practice for safe traffic control atroadworks. Within the National Government, the Department of Transportation, Communication &Infrastructure (DoTC&I) has the responsibility for the delivery of infrastructure, including Amended
Compact projects, and similar authorities deliver infrastructure at the State level.1The Consultant will
work under the overall supervision of the DoTC&I, with day to day supervision from the designatedrepresentative in the DoTC&I CRRP Project Implementation Unit (PIU).When the word Client is usedin this TOR, this refers to the DoTC&I.
Due to the current international and domestic travel restrictions in place for the COVID-19
pandemic, it is expected that this assignment will be conducted remotely with no travel to FSM. The
Consultant will be provided with relevant reports and data relating to the assignment, and will beable to conduct consultations and key informant meetings with Federal and State government
representatives.
1.1 Location and Setting
FSM is made up of four semi-autonomous states (Kosrae, Pohnpei, Chuuk, Yap) locatedbetween Palau and the Philippines to the west and the Marshall Islands to the east. Although its landarea covers just 700 square km, FSM consists of more than 600 islands scattered over an area of
about 2.6 million square km. Each State has a main, ‘high’ island (volcanic in origin) where most of

1 (a) Pohnpei – State Office of Transport and Infrastructure; (b) Kosrae – Department of Transport andInfrastructure; (c) Chuuk – Department of Transport and Public Works; and, (d) Yap – Department of Public Works andTransport.

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20200630 – Terms of Reference and Scope of Services – ROAD SAFETY AUDIT EXPERTthe State’s population is located. The overall population of FSM is estimated to be 105,544 (2017),
of which approximately 45 percent live in Chuuk, 37 percent in Pohnpei, 11 percent in Yap, and 7
percent in Kosrae. There is internal migration to Pohnpei, which hosts the Country’s capital Palikir, as
individuals are particularly drawn to employment with the National Government. Access to basic
services is also generally higher in Pohnpei. Each State is diverse in terms of language, cultural
norms and land tenure laws.
As with other small island nations in the region, FSM faces significant challenges related toits small size, remoteness, geographical dispersion, environmental fragility and sensitivity to external
shocks. In particular, frequent natural disasters and climate change impose high costs and may eventhreaten the physical viability of some areas of both the main islands and more remote outerislands. Droughts, typhoons, storm waves, flooding and landslides all affect FSM. The islands are
subject to typhoons and get frequent heavy rains and associated flooding from May throughNovember. Tsunamis, storm surges, rising sea levels, particularly during king tides, and droughts areother natural threats.
1.2 FSM CRRP Project Concept
The FSCRRP Project is proposed to include the following components:
Component 1: Spatial and Sector Planning Tools. This Component involves technicalassistance that will directly support FSM by bringing about transformative change in the way thatclimate change is addressed in the road sector. A key activity is the preparation and implementationof a Vulnerability Assessment and Climate Resilient Road Strategy to assess levels of vulnerability to
climate change and severe weather events (e.g. sea-level rise, extreme rainfall, landslide, storm
surge, etc.) across the road network in FSM and to identify measures to enhance resilience andprioritize investments to balance vulnerability reduction against cost implication. This component
will also include: (i) establishment and operation of fit-for-purpose road asset management systems(new) that consider climate factors; (ii) road survey planning tools; and, (iii) training on these tools.
Component 2: Climate Resilient Infrastructure Solutions. This Component involves
feasibility studies, design and construction of identified priority road assets to improve theirresilience to climate-related hazards and/or events. The integration of climate change
considerations into infrastructure activities will help strengthen the resilience of assets and improvefunctionality of the road network. Component 2 is split into two parts:• Sub-component 2.1: Critical climate resilient road, bridge or drainage improvement works
that should be implemented urgently to maintain a basic level of land transport connectivity in eachstate. Urgent works proposed for financing under the Project include: (i) improving the narrow, lowlevel Lelu causeway in Kosrae; (ii) replacing the 12 meter Awak bridge in Pohnpei; (iii) improving the
2.5 kilometer airport to Pou Bay bridge road in Chuuk; and, (iv) replacing two short-span (6-meterlong) steel and concrete composite bridges in Yap.
• Sub-component 2.2: In addition to the urgent priorities under Sub-component 2.1, aselection of near, medium and long-term road works would be financed to enhance the resilience ofthe network in each state to climate change impacts and natural hazards, as guided by the
Vulnerability Assessment and Climate Resilient Road Strategy undertaken as part of Component 1.
Works will be restricted to primary road networks within the existing legal road easements.
Interventions will include measures to strengthen network resilience including but not necessarily
limited to: pavement strengthening, drainage improvements, spot slope stabilization, rock wall
revetment strengthening, improvements to causeways and bridges). This will constitute the bulk of
the road works financed by CRRP.
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20200630 – Terms of Reference and Scope of Services – ROAD SAFETY AUDIT EXPERT

Component 3: Strengthening the Enabling Environment. This Component will provide
funding to support institutional and regulatory reforms for road sector asset management andmaintenance, including measures to strengthen local capacity and to increase the sustainability ofclimate resilient road sector investments. In addition, this Component will help to strengthen
coordination among relevant institutions, will look at ways in which road sector management can be
improved, and will address any emerging priority issues that can help support the Government inaddressing climate change risks.
1.3 Road Safety in FSM
A review of road safety statistics from the four FSM states indicate that there are about 500
road accidents per year, most of them on the island of Pohnpei which accounts for over half of thenumber of registered vehicles. However, there are few road fatalities, typically three or lessannually. The World Health Organization (WHO) estimates that in 2018 there were 3 road fatalities,
and that in 2013, there were two road fatalities. Information provided by the State Departments of
Public Safety indicate that there was one fatality in the year 2019. The total number of registeredvehicles across all states is about 11,000.
While there are laws in place to enhance road safety, there is need for a comprehensive
review of the legal framework, the system of enforcement and the level of awareness among law
enforcement offices, drivers and the community.
2. Scope of Services –Road Safety Audits
This assignment will require (A) baseline and (B) detailed design stage road safety audits forthe critical near-term priority works as specified in Sub-component 2.1. These works include: (i)improving the narrow, low-level Lelu causeway in Kosrae; (ii) replacing the 12-meter Awak bridge in
Pohnpei; (iii) improving the 2.5-kilometer airport to Pou Bay bridge road in Chuuk; and, (iv) replacing
two short-span (6-meter-long) steel and concrete composite bridges in Yap. A design and supervision(D&S) consulting firm for these works is being hired under aseparate assignment. The RSA consultant
and D&S consulting firm will be required to work together closely.
The purpose of these road safety audits is to identify areas of concern for the safety of thetravelling public. The audits will systematically analyze the potential risks making the infrastructure
unsafe. The recommendations arising out of these audits will inform the detailed design of the works
to mitigate the hazards. Figure 1 below sets out the basic workflow of a road safety audit.

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Figure 1 Schematic of steps in road safety audit process. From Austroads Guide to Road
Safety Part 6A: Implementing Road Safety Audit, page 25.
It is expected that the Consultant will:a. Evaluate all roadways and roadside features, design elements and local conditions (seeTable 1for suggested road safety elements to be audited) that would increase thelikelihood and severity of an accident.
b. From available accident statistics and their analyses, identify areas of greatest riskc. Review the interaction of the various design elements with each other and thesurrounding road network.
d. Gather information on driver behaviour through key informant interviews, analysis ofavailable crash data and observation.
e. Determine if the needs of all road users have been adequately and safely met
f. Explore emerging operational trends or safety issues; andg. Examine physical evidence of past crashes and off-road excursions.
The Client will liaise with the Consultant to provide, as available:
a. Extensive, detailed dashcam and drone photos and videos of the priority works sites,
including photos of the sites at night-4-

20200630 – Terms of Reference and Scope of Services – ROAD SAFETY AUDIT EXPERTb. As-built design drawings for baseline where available (noting whether these accuratelyreflect existing conditions)c. Detailed design documents including drawings for proposed works
d. Previous accident investigations conducted
e. Crash data, where available (by location, accident type, and severity)
f. Volume datag. Speed datah. Roadway functional classification
i. Existing design reports; andj. Existing policies, standards, and guidelines; andk. Any other plans to cover adjacent roads or to describe adjacent land and its uses whichmight be affected by the proposal or by the traffic changes it induces.
The consultant is expected to comply with the World Bank Environmental and Social
Framework and Standards2, in particular ESS4 Community Health and Safety, the relevant guidelines
relating to ESS4 (in particular the World Bank Good Practice Note on Road Safety) and the WorldBank Group Environmental, Health and Safety Guidelines3.
2.1 Road safety elements to be audited
The Road Safety Audit is expected to provide relevant road safety findings andrecommendations on the following items, as relevant to each priority works site.
Table 1Suggested road safety elements to be audited
Category

Elements to consider

Road alignment and 
cross-sectionIntersectionsCommunity assets and 
activities

Visibility, sight distanceDesign speed
Speed limit/speed zoning
Overtaking
Readability of signage
drivers
Location
Visibility, sight distance





by 



WidthsShoulders
Crossfalls
Batter slopes
DrainsControls and delineation
LayoutCommunity assets close to theroad / perhaps in the roadreserve (markets, stalls)
Road access to sensitive
receptorsorvulnerable
community members (schools,
hospitals, markets, shops,
emergency services)
Pedestriancrossings
andfootpaths used by school

2www.worldbank.org/esf
3https://www.ifc.org/wps/wcm/connect/topics_ext_content/ifc_external_corporate_site/sustainability-at-ifc/policies-

standards/ehs-guidelines-5-20200630 – Terms of Reference and Scope of Services – ROAD SAFETY AUDIT EXPERT

childrenSigns and lighting
Markings
delineation

and 


Pedestrians
cyclists

and 





Lighting
General sign issues
General issues
Centrelines, edgelines,
lines
General issues
Pedestrians

lane 

Sign legibility
Sign supports
Guideposts and reflectors
Curve warning and delineation

Cyclists

Bridges and culverts

Design features



Crash barriers

Pavement

Pavement defects
Skid resistancePonding
Loose stones/material

Design issues

Pavements/shoulder qualityRoadside activities (other thanasmentioned
under
community
assetsandactivities above)
Animals

Provision
vehiclesfor

Floodways
causeways

heavy and 

MiscellaneousPonding, flooding
Landscaping
Fencing
Headlight glareRoad user knowledge and behavior
Driverknowledgeand 
behaviorcontributing to crashes
Pedestrianandcyclistbehaviour contributing tocrashes and injury

Driver behaviour at sites ofsensitive receptors such as
schools.

2.2 Road safety audit report contents
The road safety audit report for each priority works site should be laid out in a manner
similar to the following:4:
1. Project information
a. A report title which includes the name of the road, the extent of the auditedsite(length of road or intersecting road name), the locality, the design stage ofthe audit (baseline or detailed design).
b. A brief description of the proposed works at the site, its objectives and any
special road users5 or special aspects.
2. Background informationa. The audit consultant name and qualifications and names of involved GoFSM
representatives.

4 This is adapted from the Austroads 2019 Guide to Road Safety Part 6A Implementing Road Safety Audit.
5 Road users include cyclists, motorists, pedestrians.

Particular focus should be placed on the risks to vulnerable users(pedestrians and cyclists).

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20200630 – Terms of Reference and Scope of Services – ROAD SAFETY AUDIT EXPERTb. An overall plan of the project or road length, with audit findings, and where
requested by DoTC&I, recommendation item numbers added to the plan.
c. Advice that both a daytime and a night-time inspection were undertaken by FSM
State Government representatives, with dates included.
d. A list of documents used during the audit, and all drawing numbers with theirdates/amendment numbers.
e. Photos of significant issues
3. Findings and recommendations
a. A series of findings about all the safety risks which were identified, withrecommendations (of an appropriate nature) if required by DoTC&I, directly
after each finding. The risks should be presented in three categories – low,
medium and high.This will be the most substantial part of the report.
b. A brief listing of major findings and recommendations, or repeated issues ofconcern, drawn out and placed ahead of the main body of findings andrecommendations
4. Formal statement
a. A concluding statement signed by the audit Consultant, advising they haveundertaken the audit.
In summary, the road safety audit report should be a concise and succinct report on aspectsof the siteswhich involve hazards, with findings or recommendations about corrective actions.

3. Scope of Services – Development of a Field Guide for Road Safety at Road Works including
Traffic Management Plan Templates for Safe Traffic Control at Roadworks in FSM
The upcoming road works as specified in Sub-component 2.1will involve continual traffic
control along the lengths of the road under construction during working hours, with half-width
working and stop/go operations, which is likely to cause frustration to road users, and increased
safety risks, so will need to be carefully and consistently managed and monitored. Each contractor
will be required to submit a Traffic Management Plan (TMP) for controlling the traffic in a safe andorderly manner. To assist the works contractor, supervision consultants and Client in preparing,
managing, monitoring and overseeing the TMPs, the consultant will develop a Field Guide for Road
Safety at Road Works that includes TMP templates that sets out best practice for traffic
management of vehicle and pedestrian traffic in FSM.
While the templates will be immediately applicable to the works contractors for the roadassets specified in this TOR, the consultant shall also consider what modifications to the templates
would be needed for it to be used in the construction of any road infrastructure asset(differentiation to be advised. i.e. by road category / speed limit etc.).
The TMP template must be compliant with AS1741 Part 3 and AS/NZS 3845, or an approved
equivalent.
4. Outputs / Deliverables
The consultant will be required to deliver the following outputs / deliverables:
A. Road Safety Audit reports


The Consultant will conduct a baseline safety evaluation for the road works sites as
specified in Sub-component 2.1(based on data and information provided by FederalandState representatives) and prepare detailed Road Safety Audit reports (4 reports, one foreach site) with findings and recommendations. These shall be presented in draft form
-7-20200630 – Terms of Reference and Scope of Services – ROAD SAFETY AUDIT EXPERTfor Client review. The Client will provide comments for the reports within two weeks
from the date of draft report submission. The draft reportsare to be lodged with DoTC&I
within one month from commencement.


Pending availability of detailed designs for the road works sites as specified in Subcomponent 2.1, the Consultant will prepare detailed Road Safety Audit reports on thetechnical measures included in the detailed designs (report, drawings, specifications);
these audits reports will be undertaken as desk studies. The reports shall by presented indraft form for Client review. The Client will provide comments for the reports within two
weeks from the date of draft report submission. The draft report is to be lodged with the
DoTC&I within one month from the Consultant’s receipt of the detailed designs.



The Consultant will prepare and deliver power-point presentations via video conference
to identified stakeholders in all four FSM states, summarising the detailed reports of theroad safety findings including their recommendations, at a date to be determined inconsultation with the Client.There will be two rounds of presentations – one for thebaseline audit, and another for the detailed design audit. It is anticipated that theConsultant will also obtain comments from the Client during thesepresentations; and

The Consultant will incorporate final comments from the Client into the Final Reports
and upon approval by the Client of the Final reports by email, for both the baseline audit
and the detailed design audit, four hard bound copies and one electronic copy shall be
supplied to the Client.

B. Field Guide for Road Safety at Road Works including Traffic Management Plan Templates
The consultant will prepare a Field Guide for Road Safety at Road Works that includes Traffic
Management Plan (TMP) templates for safe traffic control during road works which will be compliant
with relevant works contractual requirements and the World Bank Environmental and Social
Framework and Standards and the Project Environmental and Social Management Framework. The
Field Guide will be presented in a draft form for Client review. The Client will provide comments forthe reports within two weeks from the date of draft report submission.
C. Transfer of Knowledge
The Consultant will provide the DoTC&I, equivalent State transport departments andrelevant line agencies with training via video conference on the basic requirements and analysis of aRoad Safety Audit (4x 1-day training sessions) covering the general approach to RSA and also include
some specific insights into the local conditions as observed during “virtual field visits”. The
Consultancy will also handover all underlying data, analysis and models to DoTC&I for future
analyses.

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5. Selection Criteria
The consultant is expected to:






Have a degree in civil engineering or other relevant field with 15 years of relevant
work experience in road safety engineering, including the identification andtreatment of black-spots;
Have road safety monitoring and evaluation experience;
Have undertaken at least five formal road safety audits, including at least three atdesign stages;
Successfully earned a road safety audit training course certification, of at least twodays duration;
Have experience in the development and implementation of traffic and road safetyengineering schemes and management systems.

Experience in carrying out road safety audits in Pacific Islands countries will be preferred.

6. Timeframe






The Duration of the Baseline Audits will be approximately 8days input, and the work
should be completed within one month from commencement.
The Duration of the Field Guide including TMP templates will be 10 days input, andthe work should be completed within one month from commencement.
The Duration of training for transfer of knowledge shall be 4 days (1 day perState)and the training will be conducted via video conference at a date to be
determined in consultation with the Government (but not later than one monthafter delivery of the Detailed Design Audits).
The Duration of the Detailed Design Audits will be approximately 8 days input, andthe work should be completed within one month from the Consultant’s receipt ofthe detailed designs (the designs are expected to be completed in May, 2021)

7. Supervision Arrangements
The Consultant will work under the overall supervision of the DoTC&I and will report to
Secretary of DoTC&I with day to day supervision from the designated representative in the DoTC&I
CRRP Project Implementation Unit (PIU). The Consultant will also be required to work with otherrelevant federal and state agencies as required.
DoTC&I will make available the relevant personnel as required to provide local knowledge
and assistance to the Consultant. The Consultant will provide all equipment needed to execute thestudy as part of the study cost.
The Consultant will be required to hold meetings with DoTC&I to discuss progress on the
Road Safety Audits and further actions required.
The expert is required to provide their own laptop computer and any other specialized
equipment required.

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20200630 – Terms of Reference and Scope of Services – ROAD SAFETY AUDIT EXPERT

8. Duration, level of input and payment schedule
The assignment is expected to start on October 10, 2020and require input of 30working days
until October 31, 2021. The expected outputs and payment rates are presented in Table 1. The
consultant will have a lump sum contract. The payment will be conditional on the acceptance of final
deliverables following revisions requested by DoTC&I.
No.

Outputs

Payment rate

1

Baseline RSA reports

30%

2

Field Guide and TMP Templates

30%

3Training

10%4Detailed design RSA reports

30%

9. Payment procedure
Payments for deliverables will be made on the basis of the Client accepting deliverables, noton submission. The Client will be providing written feedback to draft reports which will be reviewed
and potentially result in an adjusted final deliverable submission by the Consultant.

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10. Annex 1: 2015 WHO road safety data factsheet- 11 -