I've been conducting tests on use of Bagasse ash-cement mixture for possible use as highway construction material. I'm getting values of CBR as low as 10 at cement contents of 12%.
For soil-cement, the MEPDG (Part 2, Chapter 2) suggests a MINIMUM value of Resilient Modulus of 25,000. Using the "magic" formula Mr = 1,500 CBR, this implies a minimum CBR of about 17. Therefore your CBR = 12 appears quite low.
Besides, 12% cement is really HIGH!! You are in the range of cement content of concrete, which probably means that your solution may not be economically viable (I suppose...).
CBR values of around 25 can be achieved using well compacted sand sometimes ever higher values.
Given that well compacted sand can achieve twice the CBR value you getting with "Bagasse ash-cement mixture" and regarding the cost of 12% cement compared to using just sand, it seems like it may not be a cost effective solution except if you can achieve higher values of CBR with this mixture somehow.
Decision on the choice of a value for CBR for contrucion of roads and highways construction depends on many factors including the type of road/highway. In pavement management system it is sugested to conduct feasibility study (life cycle cost analysis) for all pavement structures that are structurally sound and are also adequate for a project. It should be also noted that in AASHTO guide the good and the bad subgrade soils for pavement structures are defined based on their CBR values.