Revisiting role of National Works Agency: A call for sustainable road maintenance

The recent suggestion by the prime minister (PM) to review the National Works Agency’s (NWA) functions has sparked discussion among engineers, particularly in context of the recently launched Shared Prosperity Through Accelerated Improvement to our Road Network (SPARK) Programme.

The PM noted that the NWA is “being asked to administer roads, even roads not under their jurisdiction”, and that with “the crisis we face with roads now, the NWA is not sufficient to manage”. Now is an opportune moment to assess the NWA’s effectiveness and identify strategies for improvement.

The Jamaica Institution of Engineers (JIE) proposes dialogue with the PM to share our concerns. In this article, we highlight issues and make recommendations to address Jamaica’s road maintenance challenges.

UNDERFUNDED AND DIMINISHED EFFICIENCY

The NWA was established to manage Jamaica’s 4,800 kilometres of main roads, with an annual recurrent expenditure of $6 billion to $7 billion (JIS). That equates to about $1.5 million for every kilometre of main road. On the other hand, municipal corporations (MCs)routinely manage 10,326 kilometres, or twice the NWA scope, in parish council (PC) roads (interviews and AG Report 2020).

While only snapshots of data are available, it is possible to infer that, annually, between $1 billion and $2 billion is spent on PC roads from the Parochial Revenue Fund. This equates to less than $0.2 million per kilometre, or less than 20 per cent of what NWA receives per kilometre. This is the context of a typical main road requiring up to $5 million to maintain each kilometre. Both NWA and the MCs are severely underfunded and overwhelmed, leading to inefficiencies in maintenance.

The road network must be seen as one integrated network. A recalibration of the NWA’s and municipal corporations’ roles and funding is crucial to ensuring resources are effectively allocated across the road network.

LATE AND INEFFICIENT USE OF PROCUREMENT PROCESS

One of the significant hurdles faced by NWA is the inefficient use of Jamaica’s procurement framework. Stakeholders have suggested timely utilisation of emergency procurement measures or framework agreements with contractors, as was previously done in the NWA.

The Public Procurement Act (Section 25) are applicable to address urgent situations that create risks to life and property. JIE is of the view that the current pothole-riddled road conditions have endangered both safety and well-being, and that the timely use of procurement procedures could have arrested the conditions.

For example, a growing pothole on Alice Eldemire Drive or Spanish Town Road must be considered significant to warrant emergency procedures, before potholes engulf the entire roadways. These strategies could have enabled more responsive and cost-efficient maintenance operations.

LEARNING FROM PWD MODEL

The Public Works Department (PWD) model of localised maintenance teams offers valuable lessons for modern road management. Historically, this approach ensured that trained teams, equipped with the necessary resources, were readily available to address issues.

Reviving aspects of the PWD system could involve re-establishing regional maintenance hubs and instituting training programmes for road maintenance-specific trades and equipment operation, in collaboration with University of Technology, or HEART/NSTA Trust. This model not only addresses maintenance needs, but also enhances workforce competency, benefiting contractors and the broader economy.

ECONOMIC AND SAFETY IMPERATIVES

The economic and human costs of poor road maintenance are undeniable. Bad road conditions contribute to vehicle damage, increased transportation costs, and road fatalities. Life-cycle costing is a forward-thinking approach that the government must adopt.

Drainage and bridges are crucial components in the road network, and their conditions are begging for immediate attention and maintenance. JIE calls for the publication of the latest inspection reports on all bridges. Lack of maintenance on these elements will lead to major fatalities.

VISION FOR FUTURE

To address these challenges, the following recommendations are proposed:

1. Comprehensive review of NWA’S mandate and performance: Clearly define the agency’s scope in the road network and conduct a thorough performance review of NWA’s management. Delegating other responsibilities to specialised entities and where applicable to municipal corporations.

2. Utilise procurement processes efficiently: Timely implementation of emergency measures and framework agreements to expedite maintenance activities on critical main roads is crucial. Evaluate NWA management’s efficient and timely use of the procurement procedures.

3. Regional maintenance hubs: Reintroduce localised trained and certified teams equipped with the resources to perform routine and emergency maintenance.

4. Centralised management: Consolidate road maintenance responsibilities under one entity to ensure consistency across the entire road network.

The challenges of inadequate management systems and chronic underfunding have culminated in the current deteriorating state of our roads. The one-off SPARK Programme, despite its promises, only highlights these systemic failures by offering a temporary fix rather than a sustainable solution.

The JIE supports revisiting the NWA’s role and a review of its management functions. It is not just timely, but essential for building a more connected and prosperous nation. To this end, we look forward to dialogue with the prime minister to share concerns and ideas. As we build a sustainable future for Jamaica, what is urgently required is a comprehensive, transparent, and proactive approach to road maintenance that prioritises long-term planning and efficient use of the procurement systems.

Article courtesy of the Jamaica Institution of Engineers