There were very considerable administrative and operational inefficiencies. Project cost was 54% higher than the appraisal estimate, while the physical civil works carried out and equipment procured were roughly the same as those planned at appraisal. There was a four-and-a-half year time overrun. A Government decree caused lengthy procurement delays. There were issues with contract management, including lack of enforcement of penalties for poor performance, weak enforcement of health, safety and environmental requirements, and failure to comply fully with Bank prior review procedures for some contracts.