Development of coordinated national transport polices

Transcription

The European Union’s TACIS Action Programme 2004 – Central Asia
Promotion of Networks: TRACECA
Republic of Kazakhstan, Republic of Tajikistan, Kyrgyz Republic,
Republic of Uzbekistan, Republic of Turkmenistan
Development of Co-ordinated National Transport Policies
Republic of Kazakhstan, Republic of Tajikistan,
Kyrgyz Republic, Republic of Uzbekistan,
Republic of Turkmenistan
Reference: EuropeAid/122076/C/SER/Multi
Inception Report
(Period: 07/05/07 – 07/08/07)
GOPA - TRADEMCO Consortium
Inception Report
The European Union’s TACIS Action Programme 2004 – Central Asia
Promotion of Networks: TRACECA
Republic of Kazakhstan, Republic of Tajikistan, Kyrgyz Republic,
Republic of Uzbekistan, Republic of Turkmenistan
Submitted by the Consortium
GOPA – TRADEMCO
(Period: 07/05/07 – 07/08/07)
GOPA Consultants
Hindenburgring 18
61348 Bad Homburg
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Tel.: +49-6172-930 528
Fax: +49-6172-930 550
E-mail: gopa-tr@gopa.de
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E-mail: production@trademco.gr
Table of contents
Report cover page .......................................................................................................................................v
1
Project synopsis ..................................................................................................................................1
2
Project analysis ...................................................................................................................................2
3
2.1
Start situation: summary of inception period ...........................................................................2
2.2
Present situation in the four Central Asian States ....................................................................4
2.2.1 Regional trade and transport scenario .........................................................................4
2.2.2 Project-relevant framework for transport legal harmonisation ...................................7
2.2.3 The World Customs Organisation.............................................................................10
2.2.4 The ‘Single Window’ approach ................................................................................10
2.2.5 Multi-modal transport ...............................................................................................10
2.3
Main problems and deficiencies at a glance ..........................................................................11
2.3.1 Problems for immediate action within the project ....................................................11
2.3.2 Problems for medium and longer term action...........................................................12
Project planning and implementation ............................................................................................ 12
3.1
Objective of the project..........................................................................................................12
3.2
Relationship with other projects ............................................................................................12
3.3
Project approach, specific activities and planned outputs...................................................... 13
3.3.1 Approach...................................................................................................................13
3.3.2 Activities and outputs: review and clarification phase ............................................. 14
3.3.3 Activities and outputs: Planning and implementation phase ....................................20
3.4
Constraints, risks and assumptions ........................................................................................24
3.5
Project planning .....................................................................................................................25
3.5.1 Work plan..................................................................................................................25
3.5.2 Deployment of experts ..............................................................................................26
3.5.3 Reporting...................................................................................................................26
5.
Transport policy background..........................................................................................................10
7.
Central Asia transport sector characteristics ................................................................................15
Tables
Table 1:
Qualitative Transport User Perception Profile .......................................................................................6
Figures
Figure 1:
Project management structure ................................................................................................................3
Inception Report
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Annexes
Annex 1
Overall plan of operations
Annex 2
Overall output performance plan
Annex 3
Plan of operations for the next period (work programme)
Annex 4
Detailed revised project work plan and staff assignment plan
Annex 5
Project Area Characteristics
Annex 6
EBRD transition indicators table of 2006
Annex 7
Background information on regional economic trends in Central Asia
Annex 8
List of major meetings during inception phase
Annex 9
Kick-off meeting of 3 August 2007
Annex 10
Proposal for the High Level Group
Annex 11
Press release: European Union encourages better coordination of transport policies in Central Asia
Annex 12
Project logical framework matrix (summary)
Inception Report
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Abbreviations
ADB
Asian Development Bank
AIFU
International Forwarders Association
BSEC
Organisation of the Black Sea Economic Cooperation
CA
Central Asia
CAR
Central Asia Republics
CAREC
Central Asia Regional Economic Cooperation
CIS
Commonwealth of Independent States
EBRD
European Bank for Reconstruction and Development
ESCAP
Economic Commission for Asia and the Pacific
EC
European Commission
EU
European Union
EURASEC
Eurasian Economic Community
EWG
Expert Working Group
FIATA
Fédération Internationale des Associations de Transitaires et Assimilés (International Federation
of Freight Forwarders Associations)
GDP
Gross Domestic Product
HLG
High Level Working Group
IATA
International Air Transport Organisation
ICT
Information and Communication Technologies
IFI
International Financing Institution
IGC
Inter-Governmental Commission
IMO
International Maritime Organisation
IRF
International Road Federation
IRU
International Road Transport Union
LC
Logistic Centres
LLDC
Landlocked Developing Countries
M&E
Monitoring and Evaluation
MLA
Multilateral Agreement
MoTC
Ministry of Transport and Communications
MoU
Memorandum of Understanding
NGO
Non-governmental Organisation
OSCE
Organisation for Security and Co-operation in Europe
OSZhD
Warsaw-based Committee for the Organisation for Cooperation between Railways
OTIF
Bern-based Intergovernmental Organisation for International Carriage by Rail
PETrA
Pan-European Corridors and the Black Sea Pan-European Transport Area
PPP
Public-Private Partnership
PRC
People’s Republic of China
SCO
Shanghai Cooperation Organisation
SME
Small and Medium Enterprises
SMGS
Agreement on the International Carriage of Goods
SMPS
Agreement on International Carriage of Passengers
SPECA
Nations Special Programme for the Economies of Central Asia
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TACIS
Technical Aid to the Commonwealth of Independent States
TEN-T
Trans-European Transport Network
TIR
Transports Internationaux Routiers
ToR
Terms of Reference
TRACECA
Transport Corridor Europe-Caucasus-Asia
UIC
Paris-based International Union of Railways
UN
United Nations
UNECE
United Nations Economic Commission for Europe
UNESCAP
UN Economic Commission for Asia and the Pacific
USAID
United States Agency for International Development
WTO
World Trade Organisation
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Report cover page
Project Title:
Republic of Kazakhstan, Republic of Tajikistan,
Kyrgyz Republic, Republic of Uzbekistan,
Contract Number:
EUROPEAID/122076/C/SER/Multi
Beneficiary Countries:
Republic of Kazakhstan, Kyrgyz Republic, Republic of Tajikistan, Republic of
Uzbekistan, Republic of Turkmenistan
Local operators
EC Contractor
MoTC Kazakhstan
47, Kabanbai Batyr Str.
010000, Astana
GOPA - TRADEMCO Consortium
Almaty Regional Office
158, Panfilov Str., room 40
050000 Almaty, Kazakhstan
Tel. +7 327 2671578
Fax: +7 327 2671578
MoTC Kyrgyzstan
42, Isanov Str.
720017 Bishkek
MoTC Tajikistan
14, Aini Str.
734042 Dushanbe
Tel. +7 317 2204237
(Astana office)
Uzbek Association of Transport and Transport
Communication
16A, Uzbekistan Ave.
700027 Tashkent
Tel. +992 37 2246680
(Dushanbe office)
Tel. +998 71 1374486
(Tashkent office)
E-mail: centralasiatransport@gmail.com
Contact Person:
Mrs. Saltanat Rakhimbekova,
Dr. B. Brunnengraeber
Head of Department of Transport Policy and InternaProject Director
tional Cooperation, MoTC Kazakhstan/Chairwoman of
Steering Committee
Date of report:
Period covered:
Author of report:
Dr. F.-J. Goetz
Team Leader
9 August 2007
07/05/07 – 07/08/07
Dr. Franz Josef Goetz, Team Leader GOPA - TRADEMCO Consortium
EC M&E Team
[name]
[signature]
[date]
[name]
[signature]
[date]
[name]
[signature]
[date]
EC Delegation
TACIS Bureau
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v
Disclaimer
This report has been produced by:
GOPA – TRADEMCO Consortium
”The content of this publication is the sole responsibility of the
GOPA - TRADEMCO Consortium and it can in no way be taken to reflect the views of the European Commission”
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1
Project synopsis
Project Title:
Republic of Kazakhstan, Kyrgyz Republic, Republic of Tajikistan, Republic of Uzbekistan,
Contract Number: Europeaid/122076/C/SER/Multi (re-launch)
Countries:
Republic of Kazakhstan, Kyrgyz Republic, Republic of Tajikistan, Republic of Uzbekistan,
Project objectives:
The overall objective of the project is to support the transition process to a market economy through strengthening
international trade and improving the movement of goods and persons by road at lower cost, including cross border.
The more specific objective is the development of coordinated transport policies for the Central Asian republics,
with the final aim of enhanced regional cooperation in road transport, incl. multimodal operation.
Planned outputs:
1. Principles for National Transport Policies coordinated on the regional level;
2. Short, medium and long term action programme for legislative action
3. Legislative frameworking principles and proposals, reflecting Traceca MLA and Strategy as well as international/EU standards
4. Legal harmonisation principles to establish a regional market for the road transport sector in Central Asia
5. Preliminary qualitative scanning of existing logistic centres, needs assessment and catalogue of good practice, as a
precursor for the 2006 Traceca project on “International Logistics Centres/Nodes Network in Central Asia)
Project activities:
Review and clarification phase:
Task 1: In-depth review of the present situation
Task 2: Analysis of the membership of the four CARs in international conventions and regional agreements, as
well as in international governmental and non-governmental organisations and initiatives
Task 3: Practical handling and application of road transport legislation
Task 4: Assessment of management systems, qualifications and personnel prerequisites
Task 5: Analysis of the results of the above mentioned steps of the fact-finding exercise resulting in systematic
benchmarking
Task 6: Identification of strengths, weaknesses, opportunities and threats (SWOT)
Task 7: Collection of legislative package for the Central Asian countries related to cargo transportation with main
focus on road transport.
Task 8: Presentation of findings from tasks 1-7, development of mutually accepted guiding principles for a hierarchically classified set of laws, awareness creation and know-how transfer measures
Planning and Implementation phase:
Task 9: Elaborate short, medium and long term action plans
Task 10: Assist in the coordination of action plans among the involved beneficiaries and in implementing the action plans
Task 11: Development of a regional road transport market
Task 12: Survey of existing logistic freight centres/ needs assessment and development of catalogue of good practice
Task 13: Organisation of study tour
Task 14: Information, dissemination and awareness creation measures
Project starting date: 07 May 2007
Project duration: 18 months
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2
Project analysis
2.1
Start situation: summary of inception period
The project work on-site in Almaty/Kazakhstan started with the visit on 9 May 2007 of the Team Leader, Dr. F.J.
Goetz (for a stay of about 3 months), the Project Director, Dr. Bernd Brunnengraeber (one week) and the project
Legal Expert Mr O. d’Auzon (also for a stay of about 3 months). Furthermore, during the inception phase first visits
of following other short-term experts took place: Mr Vadim Turdzeladze (13 days), Transport Policy Expert, Mr
Dimitris Kostianis (9 days), Financing and PPP Expert, Mr George Emmanoupoulos, Freight Logistics Expert (9
days). The planned first visit of Mr Anthony Pearce, Events Organiser, had to be postponed due to health reasons.
For the preparation and conduct of the Kick-off meeting on 3 August, a second visit took place by Mr Vadim
Turdzeladze (2 days) and Mr Dimitris Kostianis (2 days). Mr Anthony Pearce (5 days) organised this opening event.
The main tasks performed during the inception phase were:
• meetings with the various beneficiaries, TRACECA National Secretaries, main stakeholders in international
traffic, other involved state organisations (customs, etc.) to discuss the situation in the transport sector, existing
ideas and plans and identify the essential points for future cooperation to inform the various beneficiaries and
partners (IFIs, associations, etc.) about the project itself and the planned working steps;
• to discuss the work programme with the various beneficiaries, TRACECA National Secretaries and partners
(IFIs, associations, etc.) and identify co-operation possibilities and co-ordination requirements;
• to set-up the project management structure, including offices in Almaty, Astana, Bishkek, Dushanbe and Tashkent;
• to organise project logistics (leasing of offices premises and hiring of staff, set-up of communication system,
procure office equipment);
• organisation and conduct of area travel;
• organisation and coordination of team work; and
• co-ordination with EC Delegation in Almaty and Dushanbe, and Europe House in Tashkent.
A complete list of persons/institutions met please find attached in Annex 8.
Highlights of the inception phase were:
• Participation as speaker of the Team Leader, Dr. Goetz, in the 1st Black Sea and 4th Silk Road Conference in Istanbul, Turkey, on 14 to 16 May 2007 organised by the IRF/IRU; the meeting provided an excellent forum for
informing a wider community about the project.
• Project missions of the project team to Astana (MoTC Kazakhstan), Kyrgyz Republic (MoTC Bishkek), to Tajikistan (MoTC Dushanbe; meeting with the Deputy Minister of MoTC, Mr Khudoyer Khudoyerov) and Uzbekistan (Association of Transport and Transport Communications).
• Successful opening of project offices in Almaty (main project office), Astana, Dushanbe and Tashkent. The project office in Bishkek is expected to be opened in September, 2007.
• Project Kick-off Meeting on 3 August 2007 in Almaty (Hotel Astana). The minutes of this meeting are included
in Annex 9.
As a result of the meetings and missions conducted, and in support of the various country project offices, following
major arrangements have been concluded:
i.
Kazakhstan: Strategic alliance concerning information exchange and close cooperation especially on PPP issues with NIITK, the Almaty based Research Institute for Transport and Communications Ltd.
ii. Kyrgyz Republic: Subscription to the legal databank and information centre TOKTOM.
iii. Tajikistan: Alliance with Association of International Automobile Carriers on the provision of conference and
office facilities.
iv. TRACECA: Agreement with the IGC Permanent Secretariat to collaborate and coordinate implementation of
MLA in Central Asia.
The commitments made from on the part of the beneficiaries:
The role of the chairman of the Steering Committee will be assumed by:
Mrs. Rakhimbekova Saltanat, Director of Department of Transport Policy and International Cooperation, MoTC
Kazakhstan;
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The nominations of Steering Committee members of the other beneficiary countries are as follows.
Kyrgyzstan: Manas A. Sabirov, Main Specialist of Transport Development Department of MoTC
Tadjikistan:
Khudoyer Z. Khudoyerov, Deputy Minister, MoTC
Uzbekistan:
Sherzod B. Alimdzhanov, Senior Expert of Uzbek Association of Transport and Transport Communications.
Expectations of the beneficiaries:
All beneficiary countries visited during the inception phase have confirmed their strong interest in the project and its
activities. One reason is that the present project in all countries of the area directly complements ongoing/planned
improvements of the regional road transport infrastructure financed from the state budget or with international donor
support. (It is worth noting the ADB comment that “the project is just in time”.)
Although Kazakhstan now much relies on its own research work and resources in the field of transport development
and facilitation, it welcomes the project initiatives in fields requiring international cooperation and know-how transfer such as the establishment of a legal framework, development of logistics centres and networking, promotion of
the PPP concept, and traffic safety. Very supportive has been the assistance of the MoTC Kazakhstan and its various
departments and affiliates.
The support of MoTC and the TRACECA National Secretary in Tajikistan (Dushanbe) has been very constructive
and helpful despite the fact that they are not endowed with ample resources, in particular for the identification of office premises and staff for the project country office.
More subdued, although still positive, has been the reaction from the side of the MoTC TRACECA National Secretary in the Kyrgyz Republic and the Association of Transport and Transport Communications in Uzbekistan. Both
countries expect increased involvement of local experts in the project’s work and therefore strongly argue in favour
of up-grading the staffing of the local liaison offices in Bishkek (not yet concluded) and Tashkent. These matters are
not yet resolved and so far, this point of discussion and discontent remains to be solved.
Project management structure:
In the following figure the final project management structure is depicted:
Figure 1:
Project management structure
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A detailed description of the phasing of the project events, i.e. EWGs, Regional Seminars, HLG is included in the
chapter “project planning” below.
2.2
Present situation in the four Central Asian States
2.2.1
Regional trade and transport scenario
(1) General
The Europe – Caucasus –Asia transport link, commonly known as TRACECA, extends from the Chinese border in
Central Asia through the Caspian and Black Sea to the South East of Europe, and has been officially acknowledged
by the leading international institutions and development agencies as a natural land bridge between Europe and Central and East Asia, and as a gateway to China, a country since long attracted by this alternative to the Silk Road.
Silk Road restoration efforts have a long standing history. They have received support from the international donor
community and development agencies, contributions from the beneficiary countries and occasionally also private
investments. One of the most recognisable single support programme has been and still is the EC funded TACIS
TRACECA initiative, which – launched in 1993 – is aimed at supporting the rather young political and economic
independence of the Central Asia Republics by providing an additional route towards European and world markets
as a complement to the Trans-Siberian overland corridors.
International experience clearly demonstrates that economic growth and welfare is to an important extent transport
sector investment driven.
For Europe, trade with Central Asia cannot easily develop without adequate transport and transhipment facilities,
characterised by high levels of service. The EU is the leading trading partner for Kazakhstan, accounting for onethird of its external trade, and the third largest for Turkmenistan. For the other three Central Asian Republics, between 10% and 30% of their external trade is currently conducted with the EU.
For the Central Asia Republics (CARs), again, an efficient link-up to both, the TEN-T corridors on the one side and
the TRACECA networks on the other is instrumental for
•
•
•
•
sustained economic growth within the region,
narrowing existing regional development disparities between the different CARs and, most important,
social and economic cohesion, and
enhancing the region’s inherent advantage as a natural transit area.
Most essential however is transport facilitation for the highly landlocked countries of the Central Asia region, such
as Tajikistan, the Kyrgyz Republic and Uzbekistan, in order to raise opportunities and living standards there. All
three of them depend on land transport services, while Kazakhstan and Turkmenistan have direct access to the Caspian Sea, and therefore the additional possibility to use maritime transport mode to reach South Caucasus and Iran.
The landlocked area countries face unique challenges related to their lack of direct access to the sea, and it has
been repeatedly acknowledged by the international community, as for example most recently (April 2007) by the
OSCE Secretariat1, that addressing their needs requires a sustained co-operation effort in the longer term.
It is a common feature for all Central Asian Republics that they are at the same time a major user and provider of
transport services. Despite the numerous initiatives supported by the international donor community, several deficiencies still hinder the free and efficient movement of goods and people within the CARs area, and outside.
Since international cargo is behaving like water, following the route of least resistance, it is obvious that - for making the Central Asia region a major node of international traffic - it needs:
• low transit cost and competitive transit times on the one hand, and
• a regionally harmonised legislative framework of transport, based on international standards and practice on the
other.
1
OSCE, Road Map leading to the Transit Transport Conference in Dushanbe/Tajikistan, 23/24.10.2007
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So far, the TRACECA/Europe – Caucasus –Asia transport link has only been able to attract minor volumes of traffic, mainly because of experienced transport difficulties. Occasional obstacles have been created during the past
decade by the great differences in the transition progress of the newly independent states of Central Asia, aggravated
by increasingly varying and changing geo-political aspirations. Despite this, the cumulative impact of corridor improvements can be considered significant.
As experienced throughout the various project missions carried out during the inception phase, the Central Asian
Countries have high regard for TRACECA’s strategic importance. It also showed that TRACECA has succeeded in
establishing political presence and good visibility due to its permanent IGC Secretariat activities and regular meetings of National Secretaries.
The perceived attractiveness of TRACEA is still very high, and the original objectives of TRACECA are still considered valid and proven by the European Commission’s recent reaffirmation of its strong interest in the East-West
Pan-European network extension and its commitment to an extended TRACECA programme.
Moreover, the emergence of new geo-political scenarios and new economic developments has created an additional
positive momentum for east-east network development. The enlargement of the EU in 2004 and 2007 has brought
about an historical shift in geo-political and economic terms in favour of an increased Europe-Asia corridor development.
The new EU Neighbourhood Policy and Programme2 as a new framework for the EU’s future relations with Eastern
Europe and Russia also have an impact on the Central Asian region The Neighbourhood Action Plans, for example,
agreed with Ukraine and Moldova clearly support the Silk Road revival efforts by explicitly making the “participation in the joint development of the Pan-European Corridors and Areas as well as in the TRACECA programme” a
priority issue of co-operation3.
Last but not least, EU foreign ministers have given most recently, in June 2007, their approval to the first-ever strategy for co-operation with Central Asia at their meeting in Luxembourg. Significantly the area provides of large reserves of oil and gas.
It is also worth noting that, in 2005, Afghanistan and Iran became new members of the TRACECA programme, the
latter opening interesting potentials for door-to-door road deliveries from Europe to Central Asia, without the need
to cross the Caspian Sea.
(2) The continuous challenge of trade and transit facilitation
Unfortunately, despite significant efforts, transit trade facilitation remains still a burning and complex issue, especially for road vehicles without TIR Carnet. But also the latter is no absolute guarantee for smooth border-crossing
operation.
The “politically designed” TRACECA transport axes match only partly the reality of international transport and
transit requirements.
As confirmed by ad-hoc expert interviews carried out during the inception period in Tajikistan on the perception of
major transport users with regard to transport and network conditions (see Table 1), the national transit systems in
the CARs are still far from satisfactory. The interviews had been organised by the Association of International
Automobile Carriers of Tajikistan.
Most noteworthy is the perceived lack of logistic facilities, as well as the highly negative rating of illegal payments
“en route” and at borders, the latter keeping the variable cost of international transport very high.
Reportedly, illegal payments can amount to up to 30 % of total freight cost.
It reconfirms what has been repeatedly pointed out by UNECE and ADB4 in earlier reports, namely that it is mainly
the non-physical barriers that impede the free flow of transit rather than the physical barriers of trade.
2
On 1July 2003 the Commission adopted the Communication “Paving the way for a New Neighbourhood Instrument
(COM2003(393)).
3
Ukraine European Neighbourhood Action Plan, UE-UA 1051/05
4
E. Molnar, WB, Transport and Trade Facilitation issues in the CIS 7, Kazakhstan and Turkmenistan (No.33879); P.N. Seneviratne, ADB, Transportation Facilitation in Azerbaijan, Kyrgyz Republic, Tajikistan and Uzbekistan.
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It applies in this context to all the countries of the project region, what has been stated in the December 2006 “Uzbekistan Transport Sector Strategy Study 2006-2020”5:
Table 1:
Qualitative Transport User Perception Profile
C - Dushanbe - China journeys
X - Dushanbe - Turkey journeys
“While customs have undertaken substantial investments in border post development at key crossings, such that infrastructure is not a constraint, investment has not been reflected in improved performance.”
Certainly a key factor for the competitiveness of a corridor is the level of transit costs. Therefore, strategies are required to minimise transit cost arising from non-justifiable transit payments or poorly maintained infrastructure. As
regards the establishment of transit payments, the major problem will be to find a balance between network user cost
recovery and promotion of network use.
Possibly even more decisive than transit payments are “transparency and speed at international borders”6. This has
a direct impact for the countries concerned in competing effectively in the global economy.
By addressing these issues in a problem-oriented way it is hoped that transport policy decisions will improve overall
mobility in Central Asia and thereby influence productivity and prosperity. Mobility is the pre-condition for enhanced division of labour (globalisation), new production technologies (just in time transport) and, hence, growth in
GDP.
The value-added of legal transport harmonisation and facilitation at a regional level leads to increased opportunities and social and economic cohesion.
5
6
ADB, Uzbekistan: Transport Sector Strategy 2006-2020, Project Number 37691- 01, 2006
UNECE
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This valued added is demonstrated in terms of:
•
Facilitated market penetration, aiding exports to Europe and the neighbouring CIS states already committed to EU standards (e.g. Ukraine).
•
Time and cost savings en route which result in improved price competitiveness of regional products.
•
Harmonised legal frameworks with international standards are an important tool to integrate the region
into the world economy. This will make the region more attractive to foreign direct investment, since investors are generally highly logistics cost oriented (for example, demanding just-in-time production).
•
The transport industry already strongly contributes to the GDP (Uzbekistan: 7%).
2.2.2
Project-relevant framework for transport legal harmonisation
(1) TRACECA MLA dimension
Trade and transport facilitation, being the main task of the TRACECA Basic Multilateral Agreement (MLA), is a
diverse and challenging issue with huge potential benefits for both business and governments on the national, regional and international levels. It cuts across a wide range of areas such as government regulations and controls,
business efficiency, transportation, information and communication technologies (ICT) and the financial sector. Although work on trade and transport facilitation has been ongoing for over half a century at UNECE and other trade
and transport related organisations, the inclusion of the issue in the WTO Doha Ministerial Declaration and the increased international attention to security, has brought the subject into sharper political focus.
The MLA will form the framework for legal harmonisation. Taking into consideration that the beneficiary countries
are full members of the IGC TRACECA and are committed by Provision of the MLA, the project will proceed via
the TRACECA Intergovernmental Commission (IGC) institutional framework in presenting legal proposals, of
which the HLG to be set up under this project will have to become a separate part (see the consultants’ proposal annexed.)
Lately TRACECA countries have made substantial efforts in adopting major international transport and transit conventions, including the TIR Convention. It is, however, not enough to sign and ratify Conventions, implementing
them is even more important, Thus, for the TIR regime to work, certain institutional requirements have to be met.
Complying with the construction requirements for vehicles or maintaining tachographs is difficult and it will take
time, capacity building, and the budget, to make these conventions operational.
Another urgent area addressed by TRACECA is the region-wide effort to harmonise existing regulations and rules.
A project7 to create a model national law on freight forwarding is now being concluded. This has focused on regional harmonisation of the freight forwarding industry and an agreement amongst the TRACECA participating
states that there is no need for further action on licensing freight transport operators at an international level. The
remaining questions concern how to achieve greater reliability and mutual recognition of insurance. There is an
agreement to produce a harmonised model freight forwarding law. TRACECA participating states agreed to continue the dialogue and the proposed model law on freight forwarding and an agreement on multi-modal transport
will form a replacement to the existing technical annexes to the MLA.
Further work to be considered by the project is the ongoing discussion on the creation and development of the regime of integrated international customs transit in the countries of the MLA (application of significant preferences for transit transportation) intended to become a new technical annex to the MLA to be concluded at the
TRACECA Anniversary Summit scheduled for autumn 2008.
It is obvious that harmonised rules, with regard to axle-load, transit charges, customs regulations, insurance and the
introduction of IT would lower transport and transit cost and time considerably.
(1) Harmonisation and multilateral legal recommended framework
WTO has been promoting Trade Facilitation since the First WTO Ministerial Conference in Singapore in 1996.
WTO explains trade facilitation as follows: “the simplification and harmonisation of international trade procedures
for collecting, presenting, communicating and processing data required for more efficient movement of goods in international trade”.
7
Project on Freight Forwarders Training Courses carried out for TRACECA by the NEA-TRADEMCO consortium with the participation of FIATA.
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International legal instruments recommended by the UN ESCAP Resolution 48/11 on road and rail transport modes
in relation to facilitation measures, are:
• the Convention on Road Traffic of 1968, and the Convention on Road Signs and Signals of 1968;
• the Customs Convention on the International transport of Goods under Cover of TIR Carnets (TIR Convention)
of 1975;
• the Customs Convention on the Temporary Importation of Commercial Road Vehicles of 1956;
• the Customs Convention on Containers of 1972;
• the International Convention on the Harmonisation of Frontier Control of Goods of 1982; and
• the Convention on the Contract for the International Carriage of Goods by Road (CMR) of 1956.
Other international instruments, proposed for accession through supplementing the clause 1 of Article 2 “International Conventions” of the Technical Annex on Customs Documentation Procedures to MLA, are:
• the International Convention on the simplification and harmonisation of customs procedures 1974, as amended;
• the Convention on customs treatment of pull containers used in international transit 1994;
• the Agreement concerning the establishing of global technical regulations for wheeled vehicles 1998; and
• the UN Convention on Liability of Operators of Transport Terminals in International Trade 1991.
The UNECE international conventions are sometimes prescriptive, while others do little more than record normative practice in each signatory state.
Where they are prescriptive, they often impose rules that might be highly effective, but require training and a very
well developed enforcement capacity to achieve anything useful. These would include:
AETR (driver work hours): This can be enforced by work sheets, manually filled in (simple, but a weak control
mechanism), tachographs (currently the imposed method in the EU), and electronic devices (proposed to become the
EU imposed method as soon as technical standards can be agreed). Although this is not an easy issue to address,
driver fatigue remains a major cause of road accidents in Central Asia countries. Transport of international tourists
will certainly be impeded if present standards are not improved. The Central Asia countries do already have rules on
drivers working hours dating from the Soviet era, but these have fallen into disuse.
ADR (dangerous goods): This may require considerable training to apply. Cross-border transport of dangerous
goods in the Central Asian region by road is rare (most dangerous goods travel by rail) and the absence of the ADR
is neither hindering trade to any considerable extent, nor posing a safety problem at present.
ATP (perishable goods): Trade in perishable goods is one of the sub-sectors that has declined since the demise of the
Soviet Union. Moreover, the poorer sectors of the Central Asian population, who are often working in agriculture or
are shopping for low-priced foodstuffs, are notable losers in this decline. The ATP is a complicated convention to
apply, and probably beyond the resources of the less-wealthy Central Asia regions at present. If the ATP is adopted
in a patchwork rather than in a regionally coordinated manner, it is quite possible that it will become a hindrance to
trade and poverty alleviation. There is no identifiable link between the absence of the ATP, and the regional decline
in transport and trade of foodstuffs.
Taking into consideration that the majority of population in Kazakhstan, Kyrgyzstan, Tajikistan, Turkmenistan and
Uzbekistan is involved in the agricultural sector, there is a high demand and necessity to facilitate international road
transport in this field. It is necessary to create and develop centres for certification of transport units and special
equipment, used during the transportation of perishable goods in the frame of ATP Convention. “Highly relevant in
this context is the ongoing TRACECA project on the “Development of Equipment Certification Centres for the
Transportation of Perishable goods in Central Asia in the frame of ATP Agreement” which is to develop/strengthen
the centres for the testing and certification of transport units for transportation of perishable goods in Central Asia
and to develop licensing systems of transport operators for transportation of perishable goods in the frame of ATP
Agreement. It is evident from the above that a successful implementation of this project would foster interregional
trade.
Additionally safety measures shall be considered as vital, in particular the Convention on Road Traffic (08/11/1968)
which stipulates a broad range of very practical road safety measures.
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(2) Other recommended standards
Road Transport
Bilateral and multilateral agreements: Reliance on bilateral agreements and unilateral implementation has led to an
excessively fragmented regulatory environment. It shall be confirmed that multilateral road transport agreements are
the primary international engagements between governments for regional cooperation and harmonisation of regulation. Consensus on this would then allow a review of the present portfolio of agreements, and decisions on their
roles in coordinated regional transport development. Superfluous agreements should be rescinded. Many agreements
lie dormant or are only partially implemented.
Most new bilateral transit agreements are on a quota-free basis, but some transit agreements are based on quotas. It
is important that these quota based agreements are upgraded to eliminate quotas. This issue will be explored further
by the project.
International Conventions: All of the international conventions on transport are key instruments in promoting road
safety, facilitating traffic flows, and harmonising technical standards. To achieve the desired effects in terms of public benefit, it is not sufficient to sign the conventions. They require enforcement capabilities that are at least partially
beyond the present means of Central Asian countries. If it is agreed that road safety is the highest priority then the
Convention on Road Traffic provides excellent practical guidelines.
Tariffs for road use: This is a controversial issue. The present fee system is chaotic, has engendered regional animosity, and requires radical revision.
• Confirm that right of entry and transit is free, but that payments may be levied for road use up to an agreed
maximum.
• Agree that any administrative fees will be included in road user charges.
• Consolidate other charges (customs convoy, ecological, etc) into road use charges.
• Do not link road transit transport fees with regional issues unrelated to road transport.
In this respect drivers frequently complain that whatever the official charges, they are required to make multiple illicit payments to authorities once they are outside of their home country. These can double the official tariffs. It
should be recognised that the problem is not going to be easy to resolve.
Weights and Dimensions of Vehicles: The region falls under the influence of three similar regulatory regimes (EU,
CIS, PRC). The similarities derive from the fact that all are based on the European standards. These three regimes
have small but significant differences. In the near term, as traffic across the PRC border is limited, the “Cholpon
Ata Agreement” on weight certification should be applied. Once regional traffic with PRC increases it is recommended to shift entirely to the European standards without derogations. The CIS has also generated the Minsk
Agreement of 1999 (MA99) on weights and dimensions of vehicles. This multilateral agreement, dealing with a
purely technical subject has had some effect at national level, but less so in creating a uniform regional regulatory
environment for operators.
Vehicle emissions: The EURO standards provide the only obvious strategy for regional harmonisation. Geographically the Central Asian regional corridors are widely dispersed, they pass through varied socio-economic
zones, and only occasionally cross large urban agglomerations. In fact it is, quite rightly, urban vehicle emissions
that are the focus of most attention in Central Asian countries at present. The ability within Central Asia countries to
maintain vehicles and to enforce the highest world standards is uncertain. The most developed areas would not have
difficulty in doing this, but many other areas would find it impossible. Hence the impacts on rural poor of any rapid
changes to regulations either regionally or nationally require particular attention.
This is a complex problem that requires carefully planned solutions and regional consensus, and possibly a twin
track approach.
As a first step it is recommended that EURO standards are confirmed as the long term strategy to reduce vehicle
emissions. In the immediate future existing GOST standards (established during the Soviet era), provided they can
be enforced with technically reliable equipment, should persist in the CIS (and for PRC cross-border traffic at present low levels). Subject to cost-benefit analysis, to poverty impact assessment and to verification of ability to enforce EURO 2, then apply it to major urban access for regional traffic, within three years. Outside of urban areas the
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GOST standards could still be allowed. As and when economic conditions allow then the EURO standards are recommended for application across the whole region, up to EURO 5.
The “Cholpon Ata Agreement” on weights and dimensions could serve as a model, to develop a similar regional
agreement for mutual recognition of certification of emission controls.
Road transport services: Road transport services are improving in the region, where economic growth allows. It is
recommended that market dynamics be the prime determinant of needs. The actions suggested are therefore to review and release any restraints on this dynamism. Regulation of quality of services is recommended, but not subsidies or quotas.
2.2.3
The World Customs Organisation
The World Customs Organisation (WCO) which aims at improving the effectiveness and efficiency of customs
globally. The WCO presents a model for legislation, standards, conventions, decisions and recommendations, offers
a forum for discussion, exchange of ideas, joint initiatives and trade consultations and is involved, among others, in
capacity building, diagnosis, planning and review of implementation.
A number of WCO instruments for trade facilitation have been developed among which then most important one is
the Revised Kyoto Convention (to be ratified before end of 2007 by the Republic of Kazakhstan). The provisions
of this Convention apply to all customs procedures and need to be specified in the national legislation of signatories.
It provides, among others, a number of guidelines related to clearance, customs formalities and transit.
Regarding transit, which is particularly important in the context of landlocked countries, the provisions are limited
to “customs transit” only (from one customs office to another). WCO recognises that border control of import, export and transit of goods, people and conveyances is critical to the integrity and sovereignty of all countries.
It is also widely recognised that an integrated border management framework improves the efficiency and effectiveness of a country’s border control.
2.2.4
The ‘Single Window’ approach
Any Single Window facility should enable sharing (standardised) information and coordinated controls of the various governmental authorities. Also it should provide facilities to receive payment of duties and other charges and
access to trade related government information. This calls for strong political will and trust, a strong lead agency,
public-private dialogue, international standards, a legally binding environment, user friendliness, accessibility and
training activities. It is here that the OSCE and UN LLDC’s could contribute.
A sound legal framework contributes to maintaining and publishing up to date legislation, regulations and procedures and to a clear definition of standards (control procedures, privacy and data protection, division of agency responsibilities and cross border identity management). International coordination allows for multi-lateral exchange of
information in combating crime, clearer enunciation of mutual responsibilities, common training programmes and
coordinated implementation of international agreements (legally binding treaties, conventions and protocols as well
as memoranda of understanding). Furthermore it allows mutual administrative assistance, recognition of equivalence
of standards, joint operations (controls and investigations), and the establishment of (cross-border, inter-agency)
contact committees.
2.2.5
Multi-modal transport
Existing legislation is for a part still of Soviet origin and outdated. We believe the subject of liability in combined
transport is a complex one and it will be addressed through a new agreement between the TRACECA participating
states in the form of a revised technical annex to the MLA. Furthermore FIATA documents shall be officially accepted.
Many international organisations are active in the region and are working with governments towards developing integrated, inter-modal transport and logistic systems, which include connectivity, efficiency and reliability. For example, UNESCAP focuses on developing the Asian Highway network and the Trans-Asian Railway Network.
Through the completion of Phase I of the UNECE/UNESCAP Euro-Asian Transport Links project, the main EuroAsian road, rail and inland waterways transport routes were selected and many infrastructure projects were prioritised. The UNCTAD Silk Road and TRACECA can be also mentioned. In this context, the focus should be on im-
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plementing the identified priorities. It can be emphasised that there is a need for stronger political will and improved
co-ordination.
The importance of the implementation of existing international conventions, in particular with regard to the harmonisation of customs and cross-border procedures (such as the WCO revised Kyoto Convention, the SAFE
Framework of Standards to Secure and Facilitate Global Trade and the UNECE TIR and Harmonisation Conventions) shall be emphasised.
The key issue of trade facilitations remains the harmonisation of National Transport Policies in Central Asia within
a common legal framework.
2.3
•
•
•
•
•
•
Main problems and deficiencies at a glance
The analysis carried out in the inception phase shows that it is the non-physical barriers that impede the free and
cost-efficient flow of trade and transit. The most urgent issues to tackle for improving network competitiveness
in Central Asia in this regard are listed below.
Another problem of a general nature is the latent mistrust between Central Asian neighbouring states. This
means that individual governments are investing in costly new transport links rather than using their limited financial resources to upgrade existing links that provide vital connections to foreign markets (notably the countries of Eastern Europe, Russia and the EU). It is hoped that the information exchange and permanent structures
to be established by the project, notably the HLG, will help to improve the mutual understanding between the
beneficiary countries.
At political level again, there is still a strategic planning deficit in some of the countries (for example Tajikistan), that require the elaboration of a substantive Transport Strategy Development Programme, in particular,
with regard to the regional development of transport where missing. Substantial progress has been made in this
area by Kazakhstan and Uzbekistan with the assistance of IFIs, notably the CAREC programme with ABD. It is
hoped that this work will be extended to the other countries of the region.
The most burning problems regarding physical barriers to international transport, trade and transit are outdated
fleets and poor road quality, as well as lack of bonded storage facilities. There is a major need for a programme
of infrastructure maintenance to overcome the backlog of maintenance accumulated in the past - this in turn requires the issue of road financing to be addressed to ensure that sufficient resources are available for this task. In
addition it is necessary to establish in-country bonded warehouse facilities. These issues, however, are beyond
the scope of the current project.
Another problem of a policy character is the lack of anticipative strategies in transport that is the timely tooling
up for a gradually growing diversification of demand. This concerns the upgrade and modernisation of existing
infrastructure facilities and equipment and the construction of new ones.
Altogether, the major tasks in the longer run will be to better exploit in a common and coordinated effort the
area’s location advantage, improve transport and transit efficiency and raise technical standards, and develop
modern logistics.
2.3.1
Problems for immediate action within the project
OPERATIONS
• the commercial barriers to trade (unjustifiable transit payments), and delays could be addressed by the HLG;
• delays for especially perishable goods at borders and en route are having serious effects on trade, in particular
for exports in the highly landlocked and agricultural economies of Tajikistan and Kyrgyzstan; furthermore the
different opening hours of border posts within the area network are another issue that should be addressed by
the HLG;
• road safety is a problem in all of the beneficiary countries, with typically two and a half times the average
number of road deaths per million population compared to the EU average; the project will propose actions to
improve this situation.
LEGISLATION AND REGULATION
(although different from country to country)
• the existence of quota regulations in international road transport – although there is considerable progress in
having quota-free bilateral agreements it is important to remove the remaining quotas;
• the lack of a single window concept and one-stop shop implementations for border controls and paper work;
• the lack of a harmonised regional customs transit regime;
• incompatibilities between national legislations (for example, in the area of freight forwarding);
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•
•
•
•
•
violations of conventions, international treaties and regional agreements – these should be addressed by the
HLG;
the low acceptance of the TIR system;
lack of provisions and procedures for the introduction of bonded carriers (legal framework for customs broker
services);
lack of legal harmonisation concerning access to the profession;
lack of a PPP-friendly environment with appropriate concession legislation
NETWORK FORMATION
In the area of multi-modal transport, one problem observed is that the location of logistics nodes is determined by
government decree rather than by demand-oriented analysis and decisions. The project, should carry out a qualitative scan of the existing situation and pipeline projects with the objective of producing a catalogue of development
criteria.
2.3.2
Problems for medium and longer term action
LEGISLATION AND REGULATION
• accession to and proper implementation of international conventions/ agreements;
• the subjects of reliability and liability, especially with regard to combined (inter-modal) transport;
• the current project can make proposals for action in these fields.
3
Project planning and implementation
3.1
Objective of the project
The overall objective as stipulated in the ToR remains unchanged and is as follows:
“… to support the transition process to a market economy through strengthening international trade and improving
the movement of goods and persons at lower costs, including cross border.”
3.2
Relationship with other projects
A number of TRACECA projects are directly related. Those completed more recently are:
• Harmonisation of border crossing procedures (completed 2004);
• Unified policy on transit fees and tariffs (competed 2004);
• TRACECA co-ordination team (completed 2004); this project insofar as it dealt with a feasibility study showing
past and actual competitive situation of TRACECA corridor;
• Common legal basis for transit transportation (competed 2004);
• Capacity development of senior transport officials (completed 2005);
• Trade facilitation and institutional support (completed 2006)
The relevant lessons learnt from these past projects as detailed in the TRACECA programme evaluation report
2002-2006 are the following:
• A pragmatic approach needs to be adopted in the light of the realities of the region (see the experience with
transit fee harmonisation) requires that the project should not adopt proposals where “the perfect is the enemy
of the good”.
• Appropriate dissemination of project reports and results is the key to project efficiency.
• There has already been work on the issues of TRACECA road haulage permits and haulage systems and
TRACECA visa, which needs to be fully taken into account by the present project.
• All the results of past projects did “bring some TRACECA countries closer to EU policies, but only at the margin” (certainly in central Asia).
Ongoing are the projects:
Regulation on the transport of dangerous goods (to be completed in 2007);
Aktau Port Development: Masterplan and feasibility study;
Freight forwarders training courses for Armenia, Azerbaijan, Georgia, Kazakhstan, Kyrgyz Republic, Moldova,
Tajikistan, Turkmenistan, Ukraine, Uzbekistan;
•
•
•
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•
•
Creation of perishable goods licensing and certification centres;
Analysis and forecasting of traffic flows for TRACECA countries and interregional transport integration, including organisation of transport dialogue between EU and NIS in the framework of new EU neighbourhood
policy.
Planned are the following projects (pipeline):
• Logistics centres network for all TRACECA countries (currently being tendered).
There are evident overlaps between the last of these (with a budget of € 3.5 million) and the present project, and we
propose to adopt the recommendation of the TRACECA programme evaluation report 2002-2006 that “rather than
trying to do what the much larger project is supposed to do, it could, however, find a useful role in preparing the
way.”
The following IFI projects are directly related to the trade facilitation issue (not mentioning ADB, EBRD and WB
infrastructure projects):
• ADB CAREC Facilitation of transport co-operation among Central Asia Regional Economic Co-operation
countries (ongoing);
• WTO Accession training course covering the CAR region (completed 2005).
The project envisages close co-operation with all ongoing projects and those to be started during the project implementation period.
3.3
Project approach, specific activities and planned outputs
3.3.1
Approach
The basic approach will remain more or less unchanged from the one outlined in the GOPA/TRADEMCO offer.
Nevertheless, after review of the present situation and discussions with beneficiaries and major regional stakeholders it became clear that some adaptations need to be proposed. The revised approach is explained below.
Emphasis will be put on the in-depth evaluation of national transport policies and legislative frameworks of each of
the beneficiary countries in the light of the key issues and problems highlighted in Annex 6, including issues related
to the PPP-enabling environment. The potential for regional co-ordination and co-operation with regard to these
policies will then be assessed and recommendations made for action plans to be implemented differentiated into
short, medium and long-term packages. Monitoring and support for implementation will be provided by
GOPA/TRADEMCO.
The action plans will be based on the consideration that technical and administrative harmonisation needs to
come before economic and political integration.
These action plans will be:
• formulated in the context of the prevailing legislative framework and identified transport sector development
needs and
• developed in close co-ordination with TRACECA National Secretaries and the IGC, relevant national/regional
programmes and initiatives.
In line with the ToR, the main focus will be on two work packages:
1. Develop - through legal harmonisation and transport facilitation - the regional road market in Central Asia;
2. Assist in the modernisation of the region’s transport system by assessing the logistics capacities, possibilities
and limitations. A critical overview of the existing and planned logistics centre network in the region will be
pre-assessed in line with internationally accepted criteria and standard practice (see comments under Task 12).
The project legal work will be focused on trade and transport facilitation issues, with special regard to international
requirements, following the approach outlined below.
Concerning national law, for each particular topic (such as mainly vehicle registration and licensing schemes, vehicle standards and permitted weights, entry into the profession and market and corresponding training and certification, duties and taxation) the following will be assessed:
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•
•
Current legislation in each country of Central Asia;
limitations of the current legislation, against the background of European Union (EU) (and/or other particularly
relevant) legislation/policy.
Following the analysis, recommendations will be made on any necessary changes to the current legislation following
a regional and best practice approach.
Concerning international conventions in general, especially however the seven International Transport UNECE
Conventions and Agreements endorsed by the UN ESCAP Resolution 48/11, as well as EU Directives on permissible standards and weights:
• Conventions of which each of the four countries are contracting parties;
• the way theses conventions are implemented - any breaches to these conventions will be reported to the High
Level Group (HLG) (see Annex 10);
• constraints in practice with the implementation of these conventions;
• institutional capacities.
In the area of international law:
• Analyses of bilateral and multilateral agreements;
• analysis of constraints in practice with the implementation of these agreements;
• violations of these agreements will be reported to and discussed by the HLG.
The way to make harmonisation work in practice is by the establishment of multilateral agreements (following,
amongst others, the practice of the MLA), but Central Asian countries have been reluctant to embrace fully such
agreements as working instruments. Most of the multilateral framework agreements signed up until the present time
must be acknowledged as cul-de-sacs, or be re-examined and activated. The implementation of existing agreements
is overdue, as a less effective alternative to multilateralism is a fragmented regulatory regime. Transport corridors
might then be created physically, but be denied traffic because of the regulatory chaos.
Methodology
The advisable methodology will be:
Step 1. to consolidate the existing regional legal basis; and
Step 2. to further develop it in line with the requirements of modern transport systems/services (such as multimodal
transportation or international customs transit);
Step 3. to ensure a sound legal operational environment for transport operators and shippers.
Development of insurance services (freight and operator liability insurance) to be made widely available for transport operators, transport services providers (for example terminal operators) and shippers constitutes an integral part
of this task.
3.3.2
Activities and outputs: review and clarification phase
Task 1
Task 1 as described in the consultant’s technical proposal states: “An in-depth review of the present
situation in four Central Asian states to give clarity to all involved stakeholders about short,
medium- and long-term transport policies.”
The main focus will be on the assessment of policies and the business environment in the road sector. Review will
be carried out of the existing situation by means of desk research, missions to all beneficiary countries (including
ad-hoc expert interviews), data collection and analysis was started during the inception phase. It shows that there is
ample information available from the beneficiaries and IFIs and other stakeholders (associations). Nevertheless, data
collection and analysis on a large scale is still required in the months to come. This also extends to the more in-depth
identification of formal training needs. However, it is clear from the information gathered, that training is needed in
the legal field, the field of transport safety and environmental protection, PPP/freight market development and institutional strengthening. Major information gaps still exist especially as regards laws, the PPP enabling environment
and institutional capacity.
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14
As regards the required provision of policy guidelines for the development of the road transport sectors, much of
this work has already been done by projects assisted by the ADB8. Therefore, this work will be fully taken into the
current project.
The further data collection process and review of the present transport situation will be facilitated in future as a result of the successful set-up of antenna offices in Astana, Dushanbe and Tashkent, which are charged with coordinated data collection and verification. Unfortunately, the project has been hampered by lack of cooperation in
the establishment of an antenna office in Bishkek.
DELIVERABLES
• Overview and assessment of national road sector development strategies and programmes
• Demonstration of value added of road sector activities
• Formulated guidelines and manual for private sector development (PPP enabling environment).
Task 2
•
•
•
“Analysis of the membership of the four Central Asian states in worldwide international conventions and regional agreements, as well as in international governmental and nongovernmental organisations and initiatives, including:
the state of membership and respective involvement in the initiatives;
assessment of the degree of implementation and application of the relevant decisions and regulatory framework;
identification of reasons for possible violations and declining practices.”
The state of membership has been reviewed and the results partly presented during the kick-off meeting, based on
the latest information received from each member state concerning their current legal position. Further in-depth
work on a country by country basis is required to assess fully how international conventions and agreements in the
Central Asia Republics work in practice, and in order to detect possible violations and their origins.
Key resource contacts for the work on these issues have been identified during the various country missions conducted during the inception phase, these being the transporters’ and forwarders’ associations of the region, as well as
IRU.
DELIVERABLES
• A catalogue of participation in international conventions and agreements to which the beneficiary countries are
signatories (or in the process of negotiation).
• Prioritised gap analysis identifying recommended country-specific accession needs to other conventions and
agreements, including reporting to the beneficiaries.
• A catalogue of violations and recommendations for remedial measures and reporting to the HLG / IGC
TRACECA.
Task 3
•
•
•
•
“Practical handling and application of the transport legislation to be investigated by field
research; inter alia interviews on random sampling basis to be taken from:
road passenger transport operators, providers and clients;
road cargo transport operators, road haulage operators and clients;
forwarding agents and customs clearance agencies; and
customs authorities.”
Ad-hoc interviews with cargo transporters carried out in Tajikistan during the inception phase have shown that violations of international conventions and regional agreements occur, and that the enforcement of transport legislation
in many cases is deficient in the Central Asian countries. Alternative counter-measures to improve this situation will
be assessed in the following phase, including their prioritisation and specific targeting. The focus will be hereby on
the roads sector, as clearly evidenced by the terms of reference. Other modes of transport will only be considered in
relation to multi-modal operations.
8
ADB funded studies: “Kazakhstan Transport Strategy till 2015”, the draft “Uzbekistan Transport Sector Strategy 2006-2010”,
and for Tajikistan the current “Study on Development of Transport Strategy”
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DELIVERABLES
• Extension of field research to Kazakhstan, Kyrgyzstan and Uzbekistan and presentation of the results in terms of
Qualitative Transport User Perception Profiles.
• Identification of the main violations of the national legislation and regional treaties and agreements, and presentation to HLG / IGC TRACECA.
”Assessment of management systems, qualifications and personnel prerequisites, including:
Task 4
•
•
•
•
the qualifications of state officers in charge of implementing the state transport policy;
education and advanced training;
level of salaries;
resistance to corruption.”
These aspects are very important since the human factor might represent a serious non-physical barrier for smooth
and efficient transport. Related aspects still need to be investigated in more detail in the period to come. To this end,
institutional organisations of the transport sector will have to be further analysed and obvious anomalies highlighted.
However, it already emerged from discussions held with transporters as well as transport users during the inception
phase, that resistance to corruption is low, and so is the qualification of transport police and border personnel. This
confirms information provided in earlier reports by other non-governmental sources and points towards the need for
institutional strengthening measures.
It needs to be underlined that the project cannot influence behaviour, attitudes and red-tape, but only can adjust the
legal basis and formulate policy recommendations.
International experience demonstrates that partnerships between governments and the business community can accelerate investment in infrastructure and this would help the CARs to face the challenges of globalisation. Considering the very recent experience and practice of state officials in charge of the promotion of private sector involvement
in transport, our preliminary view is that training in the field of PSP and PPP can help the governments to get most
out of PPP opportunities.
DELIVERABLES
• Status report on management systems, qualifications and personnel issues to the HLG.
Task 5
•
•
•
“Analysis of the results of the above mentioned steps of the fact-finding exercise resulting in a
systematic benchmarking:
country by country and field by field issues analysed for the four Central Asian states;
with regard to the best TRACECA practices;
with regard to the EU standards.”
In line with the approach proposed by the consultant in the technical proposal, minimum standards will be developed and comparisons made with present achievement levels on a country-by-country basis. As a first stage this will
be done by relating the given situation to the situation in the most advanced Central Asia country. Kazakhstan is
very much the leader in Central Asian transport policy development and, therefore, due note will be taken of recent
transport and legal developments there.
The long-term objective will be to establish an internationally integrated trade facilitation structure which reflects
general EU policy (EC Regional Strategy Paper for Assistance to Central Asia for the period 2007-2013), and is
based on agreed international standards and instruments (gradual approximation with EU standards and legislation,
including statistical standards and methods, and effective implementation of international agreements in the transport sector).
The analysis will serve the development of a regional transport policy development action plan (short, medium and
long-term) to be presented to the HLG / IGC TRACECA. This would serve to guide national governments in developing trade facilitation plans.
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DELIVERABLES
• Summary report to the HLG / IGC TRACECA of the benchmarking analysis in relation to best practices in the
EU and TRACECA in the areas of compliance with international conventions and agreements, legal harmonisation and bureaucracy and corruption.
“Identification of Strengths, Weaknesses, Opportunities and Threats (SWOT):
Task 6
•
•
•
use of SWOT analysis (as management tool) will allow identification of the starting points for the co-ordination
of road transport policies between the four Central Asian countries;
the consultant would be well advised to propose and commence with simple steps acceptable to and feasible for
all partners involved;
successful performing of those steps will promote the political readiness and willingness towards the coordination process.”
The SWOT analysis will conclude the work of the review and clarification phase of the project. From the present
understanding, we expect to create a better awareness of the issues to be addressed in the course of the project and
this will enable efforts to be targeted to minimising weaknesses and mitigating risks from the threats identified. This
will also provide inputs to all activities in the planning and implementation phase.
A preliminary SWOT analysis concerning the PPP enabling environment in CARs, based on the experience with
private sector involvement in Kazakhstan has been carried out during the inception phase and presented during the
kick-off meeting. In the following period, this assessment process will be further elaborated and extended to the
other beneficiary countries.
DELIVERABLES
• The SWOT analysis covering four main domains:
1. regional transport development;
2. legislation and administration;
3. private sector enabling environment (including PPPs);
4. the logistic network.
Task 7
“The consultant shall collect a complete legislation package with the main focus on road transport
of the four Central Asian countries related to cargo transportation. The consultant shall:
(i) Review and analyse the state of development of the road transport legislation in the four Central
Asian states with respect to
• the development of the national transport legislation,
• membership in international worldwide and regional conventions,
• membership in international, government organisations, as well as NGOs,
• regional/bilateral agreements on co-ordination of actions,
• institutional structures practically implementing the regulatory framework and
• institutional structures supervising the implementation of the regulatory framework;
(ii) Carry out a country by country in-depth exploration of the present situation as regards the implementation and
practical application of the legislative and regulatory framework of the movement of road transport, reflecting at
least the following issues and their practical application by the four Central Asian states:
Legal issues:
• mutual recognition of compulsory insurances;
• legislation on security subjects;
• legislation on safety, environmental and other technical standards;
• legislation governing movement of cargo by road over borders (CMR);
• contract law governing domestic cargo transport;
• common liability laws on cargo transportation.
Technical and infrastructure issues:
• net access conditions and restrictions;
• investment policies including financing options for infrastructure investment (e.g. road taxes, excise duties, PPP
schemes);
• public transport development with specific regard to trans-boundary transportation.
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•
•
•
•
•
•
•
This research will result in the creation of a legal database possibly structured as follows:
Laws and acts determining the general role of the transport sector in the national economy of the country and
reflecting the significance of the sector in the development policy;
acts underpinning the role of transport infrastructure, including questions of public access, fiscal measures and
privatisation alternatives;
regulations in the civil codes and the commercial codes, including those related to the actors in the transport
business, e.g. forwarders, shipping agents, road hauliers, etc.;
road transport regulations;
cross sectional areas, including regulations on interfaces between the various modes of transportation and multimodal transport;
regulations on border crossing procedures and actors involved, e.g. immigration, customs, technical and social
requirements.”
Since writing the ToR, the legal framework has been developed further.
First, Kazakhstan has made an important step with the drafting of the new transport code currently being considered
in Parliament. This document could be a first benchmark for measuring the legal transition progress in other beneficiary countries.
Second, within TRACECA a “model national law on freight forwarding” and “agreement on Multimodal Transport”
is now being concluded.
Third, the creation and development of “the regime of integrated international customs transit in the countries of the
MLA” is intended to become a new technical annex to the MLA.
These initiatives will be taken up by the project, in close cooperation with the PS IGC TRACECA and the beneficiary countries / full members of the MLA.
The task list for this activity proved to be very comprehensive and detailed, and it was only possible during the inception phase to deal with the more global issue of participation in international conventions and regional agreements. Therefore, it will be part of the future project work to deliver a more detailed, structured and comparative input based on a country-by-country analysis, and to develop a package of draft amendments and actions in the legal
field conducive for international/inter-modal transport. The legal analysis will extend to concession specific legislation.
The consultant will propose guidelines for how to regulate and implement the various issues. In Expert Working
Groups (EWGs) and regional seminars, the options will be discussed and weighed against each other. The consultant
will prepare recommendations separately for each country, including which international/regional agreements
should be adhered to and prepare initial recommendations on the development of the national / regional legal base.
In carrying out these tasks, the consultant intends to form a pool of regional legal experts coordinated by the international legal expert, and involve the project antenna offices, and to closely work with relevant authorities and the strategic partners. It should be noted, however, that research to date reveals that there is not complete agreement in the
beneficiary countries on the need for legal harmonisation, good neighbourly relations and harmonisation of policies.
Therefore there is a risk that progress on this task will not be as complete as desirable.
The creation of a legal database which is part of this task will be an important input and resource of information
for the project website that will be established under Task 14.
Admittedly, the lack of strong knowledge of the Russian language from the consultant’s side posed a serious problem in the legal field. In all project Central Asian countries visited during the inception period, most of the laws
were available only in their national language and in Russian. The only English language legal database has been
identified in the Kyrgyz Republic and the project subscribed to it. Also there, however, it contained only a selection
of aviation laws, not covering all the rest. Since there is therefore substantial need for quite a lot of “leg work” in
locating English text versions or translating legislation - in particular as far as national implementation and enforcement regulations are concerned - the project’s progress in the legal field is affected.
The translation problem also renders rather difficult, if not impossible, the creation of a complete legal database in
two language versions.
The consultant is fully aware that the legal work is most important to ensure that a clear picture is given of the current framework of transport policies. For reducing the amount of legislation to be translated and speeding up the
work progress, the following is proposed:
Inception Report
18
•
•
•
To terminate the existing contract with the long-term international legal expert (remaining input of 132 working
days);
to contract a new international or regional senior legal expert (for a period of 105 working days) with team
management skills and ample experience in the field, who will guide and co-ordinate legal expert working
groups in the various countries;
to contract for the remaining budget additional national (local) legal experts in the region as far as possible and
required. A detailed proposal is under preparation and being submitted to the EC Delegation under separate
cover.
This should also help to satisfy the critics and demands of certain beneficiaries concerning a greater participation of
national resources in the project work.
DELIVERABLES
• A catalogue of existing national laws of relevance to transport, international trade, customs, taxation, transport
tariffs and the existing trade and transport agreements, multilateral, bilateral and international conventions and
agreements.
• Initial recommendations on the development of new laws, the modification of existing laws and the accession to
international conventions and agreements (see also under Task 2). The MLA will form the basis for legal harmonisation.
• Overview of investment protection and concession laws.
• Concept for the creation and development of regional agreement (or new technical annex to the MLA) on integrated international customs transit.
• Concept for a one-stop-shop customs check point (Kazak-Kyrgyz border) for further development;
• For the two above concepts, the project could proceed to develop a methodology and draft legal framework law
if at least two of the beneficiary countries agree with them.
• Identification of bilateral transit agreements that are based on quotas to be converted to a quota-free or non permit system basis.
• Creation of hierarchically structured legal data base by country, and presentation on the project website.
• Eventual submission of the results of the project work relevant to the MLA to the TRACECA MLA anniversary
summit in 2008.
Task 8
“Presentation of findings from tasks 1 to 7, developing mutually accepted guiding principles and a
hierarchically classified set of laws as well as awareness creation and know-how transfer measures will be carried out in form of at least one regional stakeholder workshop and minimum six coordination and working group meetings. “
On the occasion of the various missions conducted to the different beneficiary countries during the inception phase,
first co-ordination meetings (altogether 5) were held with the MoTCs and associated partners in Astana (2),
Dushanbe (1), Bishkek (1) and Tashkent (1). First findings resulting from the inception phase were presented during
the project kick-off meeting on 3 August.
A first centralised regional seminar has been planned on PPP issues to be held in Dushanbe on 25 October to coincide with the OSCE meeting on the subject of private sector investment in transport infrastructure.
All the findings of the clarification and review phase will be presented in the first progress report due after six
months of project start-up (November 2007), and discussed in the HLG to be held in Astana on 24 November. The
findings will be analysed further by EWG meetings in accordance with the working plan presented in Annexes 1 to
3. In addition, follow-up measures will be presented and discussed in Steering Committee meetings, combined with
centralised regional seminars and/or HLG meetings. A second centralised regional seminar will be organised to consider the project findings on legal issues. Protocols will be drafted to reflect agreements reached at each step in the
process.
DELIVERABLES
• Two centralised regional seminars.
• Quarterly steering committee (SC) meetings.
• 2 HLG meetings and EWGs as appropriate.
Inception Report
19
3.3.3
Activities and outputs: Planning and implementation phase
“Elaborate short, medium and long-term action plans required for each of the countries and in
close co-operation with the main stakeholders of the respective country. The plans should comprise
work packages structured by transport policy action fields and be addressed to competent stakeholders. The plans should complement the efforts of other relevant regional actions and should
avoid duplication and strengthen them. The consultant must at the same time identify steps and measures managing
the correlations between the various work packages and the interfaces between the transport policy action fields.
Determine next steps to be executed immediately and to be implemented in the medium and long run.”
Task 9
In line with the approach presented in the GOPA/TRADEMCO technical offer, the consultant will build on the work
of other initiatives in the field of co-ordinated transport policies, and here in particular on the work on MLA
TRACECA implementation and the work of ADB CAREC and OSCE programmes and working groups. Close cooperation and co-ordination of contributions by the various programmes will be the key to ensuring complementarity rather than duplication of efforts. A key element to be introduced with the action plans will be adequate instruments for monitoring and support for implementation.
From the missions undertaken to the beneficiary countries, the importance of PSP for the project region’s sustainable development has become clear. The elaboration of short, medium and long-term action plans will include therefore the areas of transport financing and attraction of private sector interest in the transport sector, embarking especially on aspects such as the enhancement of the investment climate.
DELIVERABLES
• Short, medium and long-term action plans required for each of the countries (although the understanding of the
need for reforms varies from country to country).
• Definition of well coordinated short, medium and long-term work packages and their assignment to EWGs by
the first meeting of the HLG.
“Assist in co-ordinating the action plans among the involved beneficiaries and in implementing the
action plans. This next task shall follow the action plans agreed under Task 9. The work could be
Task 10
executed at the same time at three levels as follows: (i) the ad hoc level shall be executed immediately; (ii) the principal legislative level re operative transport affairs; and (iii) the strategic level re
supreme transport doctrines and general transport laws.
For rendering the project recommendations and outcome operational, the consultant will put major emphasis during
both the remaining review and planning phase on the implementation regulations by dealing - focused on road
transport - with comprehensive laws and relevant bylaws. This will be done against the background of the new
transport code of Kazakhstan and under consideration of the EU and international law and practice.
In this context, the consultant will draft work packages and accordingly form EWGs in line with the findings identified during the inception and further review phases. We have already identified at least three work packages of major importance:
Legal: TIR system promotion; implementation of international conventions; improvement of legal framework for
logistics services; harmonisation of legal control and enforcement mechanisms; harmonisation of access to the profession.
Traffic safety: Road statistics and development of accident data base; impact on road safety of freight traffic; road
safety programme evaluation on a country to country basis; requirements for future technology transfer on road
safety topics.
PPP/freight market: Logistics centre networking approach; prerequisites for successful PPP; maturity components
for PPP enabling environment; pricing, permits and road user charges; management of transport finance.
The work on these packages will be done at two levels: national EWGs in the various beneficiary countries and centralised regional seminars which are to consolidate the work of the EWGs. Both EWGs and the regional seminars
will provide support and results to the HLG meeting. The planning schedule for the different EWGs, centralised regional seminars and HLG meetings is provided in the work plan in Annex 10.
Inception Report
20
DELIVERABLES
• Reports and working papers on relevant topics to the HLG / IGC TRACECA.
• Centralised regional seminars and EWGs.
• People trained.
• Training materials.
“The development of a regional road transport market consisting of the development of legislation,
administrative practices and administrative structures to facilitate road transportation across Central Asia and thus contributing to the promotion of mutual trade and the reduction of road transport costs. Examples of similar policies inside the EU shall be used in an effort to approximate the
existing legislation in the various countries of Central Asia.”
Task 11
It is one important outcome of the inception phase that the regional road transport market is far from perfect:
•
•
•
•
Although Kazakhstan is advancing very fast in liberalising the transport sector, Uzbekistan’s sector is still government controlled and deregulation is advancing at very slow speed.
The changing methods of transport and the further development of multimodal transport are continuing to impose new needs for infrastructure, especially multimodal terminals which internationally are developing to logistic centres incorporating all related functions of international transport and logistics.
Some of the countries in Central Asia are more advanced than others in the planning of logistics centres or in
upgrading existing rail/road terminals to logistics centres.
Kazakhstan and Uzbekistan have recently developed national transport sector strategies, while Kyrgyzstan and
Tajikistan are still in the process of doing so with support from ABD.
Besides these developments, there is still an urgent need to improve customs and border crossing and transit procedures along corridors in the Central Asian countries, so as to reduce unnecessary delays and discriminatory
taxes/charges, which are constraining traffic and trade. The improvement of borders and transit facilities will expedite the movement, release and clearance of goods in transit.
The consultant will follow-up trade facilitation proposals resulting from earlier EU projects and international donor
assistance. In particular, the consultant will make recommendations how to improve market penetration and acceptance of documents used under the TIR convention.
In full agreement with the ToR and the consultant’s technical offer, the project will prepare concrete legislative proposals. It would be rather unrealistic in this respect to draft a complete new set of laws or to make complete proposals for amended legislation, regarding time-consuming mechanisms and administrative structures in the beneficiary
countries and the limited time-frame for project implementation.
DELIVERABLES
• Identification of TIR violations and reporting to the HLG / IGC TRACECA.
• Legislative concept papers, recommendation on changes to administrative practices and administrative structures, and draft legal amendments aimed at facilitating road transportation.
“The project will carry out a survey of the existing logistic freight centres and define where it is
efficient to improve these or to create completely new ones. It will identify the desired locations of
these new/existing centres in each country (including Uzbekistan) and prepare an overall feasibility study needed for the creation/modernisation of such centres allowing at a later stage IFIs and
other (private) financial institutions to finance the creation/modernisation of such centres.”
Task 12
During the inception phase, first contacts have been made with IFIs (EBRD, ADB) and private parties (IRF) of potential interest in logistic freight centre co-finance and management. It emerges from all discussion held, as well as
from the consultant’s experience with earlier work on feasibility studies that the magnitude of a feasibility study in
the given context has been widely underestimated by the ToR.
A true feasibility study in the sense of establishing financial and economic project viability is a very demanding exercise, requiring an evaluation of the overall freight traffic within the logistics centre’s catchment area. The review
during the inception phase of existing traffic data showed, that the data readily available are not sufficient to support
traffic forecasting by flow assignment, as required for a traditional feasibility study, and there is much doubt that the
necessary information can be found in the very limited time available to the logistics expert. Another important fact
Inception Report
21
is that a logistics study will be financed from the TRACECA 2006 programme (with a by far more realistic budget
of € 3.5 million), covering the entire TRACECA area.
Thus, it is proposed, instead of embarking on a traditional feasibility study in the framework of our project,
to do a “needs assessment (preliminary screening) for logistics centres” in form of SWOT and multi-criteria assessment, covering all the existing and planned facilities in the Central Asia region
• and to establish a catalogue of good practice, based on international standards and experience, where and how to
extend existing facilities or create new ones.
•
A similar approach has already been advised in the 2007 evaluation of TACIS TRACECA Programme 2002-2006
which says: “Rather than trying to do what the much larger project can do, it (the present project) could find a useful role to play. This would essentially mean surveying existing facilities and studying the potential market for logistics centres; a tentative pre-feasibility study could be undertaken.”
The results of the pre-feasibility scan should provide valuable input for both the further specification of national
transport strategies and investment projects (in particular for the TRACECA logistics network study mentioned
above).
DELIVERABLES
• Preliminary qualitative scanning of existing freight centres.
• Needs assessment for the creation and modernisation of the regional logistic centre network.
• Catalogue of good practice in line with international experience and standards.
The consultant shall organise a study tour, keeping in mind the following: (i) the participants shall
visit the bodies involved in co-ordinating transport policies legislation, as well as in policy making;
(ii) a study tour shall be organised to one TRACECA country, member of the Multilateral Agreement or one member state of the EU; (iii) three participants from each of the five beneficiary countries shall take part in the study tour.”
Task 13
Preparations for a study tour are currently being advanced to reflect the thematic priorities as described in this report. The consultant will present an outline programme for the execution of the study tour on the occasion of the
Steering Committee meeting in November.
DELIVERABLES
• A study tour as described above.
Task 14
“Information dissemination and awareness creation measures such as publishing leaflets, manuals
or other means of communication shall be carried out in order to inform a broader public on the
co-ordination efforts and the results. A special website will be created in Russian where all deliverables of the project can be accessed by all interested parties free of charge.”
A press release announcing the launch of the project has been circulated on the occasion of the project kick-off
meeting (see Annex 9). Concerning the website, the consultant is currently preparing an appropriate design and will
keep its contents up-to-date aiming to provide:
• Information on the project and its objectives;
• reports and issue papers;
• response directly from the site.
The consultant has already registered the domain name <centralasiatransport.com> for the project website.
DELIVERABLES
• Setting up of a bilingual (Russian and English) website with the domain name www.centralasiatransport.com
with links to beneficiaries and associated partners.
• Press releases, leaflets and other promotional materials.
• Conference and seminar proceedings.
The deliverables by task and TOR requirement are summarised below. A most particular deliverable will be the establishment of the High Level Group, the first meeting of which is scheduled for 24 November in Astana. In conjunction with the IGC TRACECA annual meeting.
Inception Report
22
Task TOR
1
In-depth review of the present
situation
Deliverables
• Overview of road sector development strategies and programmes
• Demonstration of value added of road sector activities
• Formulated guidelines for private sector development (PPP enabling
environment)
• A catalogue of participation in international conventions and agreements to which the beneficiary countries are signatories (or in the
process of negotiation).
• Prioritised gap analysis identifying recommended country-specific
accession needs to other conventions and agreements, including reporting to the beneficiaries.
• A catalogue of violations and recommendations for remedial measures and reporting to the HLG / IGC TRACECA.
• Extension of field research to Kazakhstan, Kyrgyzstan and Uzbekistan and presentation of the results in terms of Qualitative Transport
User Perception Profiles.
• Identification of the main violations of the national legislation and
regional treaties and agreements, and presentation to HLG / IGC
TRACECA.
• Status report on management systems, qualifications and personnel
issues to the HLG.
2
Analysis of the membership of the
four CARs in international conventions and regional agreements,
as well as in international governmental and non-governmental
organisations and initiatives
3
Practical handling and application
of transport legislation
4
Assessment of management systems, qualifications and personnel
prerequisite
5
Analysis of the results of the above •
mentioned steps of the fact-finding
exercise resulting in systematic
benchmarking
6
Identification of strengths, weaknesses, opportunities and threats
(SWOT)
7
Collection of complete legislative •
package for the Central Asian
Countries related to road transportation.
•
•
•
•
•
•
•
•
•
•
•
•
•
8
•
Presentation of findings from
tasks 1-7, development of mutually •
accepted guiding principles and a •
hierarchically classified set of
laws, awareness creation and
know-how transfer measures
Inception Report
Summary report to the HLG / IGC TRACECA of the benchmarking
analysis in relation to best practices in the EU and TRACECA in the
areas of compliance with international conventions and agreements,
legal harmonisation and bureaucracy and corruption.
The SWOT analysis covering four main domains:
regional transport development;
legislation and administration;
private sector enabling environment (including PPPs);
the logistic network.
A catalogue of existing national laws of relevance to road transport,
international trade, customs, taxation, transport tariffs and the existing trade and transport agreements, multilateral, bilateral and international conventions and agreements.
Initial recommendations on the development of new laws, the modification of existing laws and the accession to international conventions and agreements (see also under Task 2). The MLA will form
the basis for legal harmonisation.
Overview of investment protection and concession laws.
Concept for the creation and development of regional agreement (or
new TA to the MLA) on integrated international customs transit.
Concept for a one-stop-shop customs check point (Kazak-Kyrgyz
border) for further development.
For the two above concepts, the project could proceed to develop a
methodology and draft a legal framework law if at least two of the
beneficiary countries agree with them.
Identification of bilateral transit agreements that are based on quotas
to be converted to a quota-free or non permit basis.
Creation of hierarchically structured legal data base by country, and
presentation on the project website.
Eventual submission of the results of the project work relevant to the
MLA to the TRACECA MLA anniversary summit in 2008.
Two centralised regional seminars.
Quarterly steering committee (SC) meetings.
2 HLG meetings and EWGs as appropriate.
23
9
Elaborate short, medium and long •
term action plans
•
10
Assist in the coordination of action •
plans among the involved benefi•
ciaries and in implementing the
•
action plans
•
11
12
Development of a regional road
transport market
Survey of existing logistic freight
centres/overall feasibility
•
•
•
•
•
13
Organisation of study tour
14
Information, dissemination and
awareness creation measures
•
•
•
•
Short, medium and long-term action plans required for each of the
countries (although the understanding of the need for reforms varies
from country to country).
Definition of well coordinated short, medium and long-term work
packages and their assignment to EWGs by the first meeting of the
HLG.
Reports and working papers on relevant topics to the HLG / IGC
TRACECA.
Centralised regional seminars and EWGs.
People trained.
Training materials.
Identification of TIR violations and reporting to the HLG / IGC
TRACECA.
Legislative concept papers, recommendation on changes to administrative practices and administrative structures, and draft legal
amendments aimed at facilitating road transportation.
Preliminary qualitative scanning of existing freight centres.
Needs assessment for the creation and modernisation of the regional
logistic centre network.
Catalogue of good practice in line with international experience and
standards.
A study tour as specified in the TOR.
Setting up of a bilingual (Russian and English) website with the domain name www.centralasiatransport.com with links to beneficiaries
and associated partners.
Press releases, leaflets and other promotional materials.
Conference and seminar proceedings.
The proposed details of the HLG are in Annex 10.
3.4
Constraints, risks and assumptions
During the inception phase, the risks and uncertainties mentioned below were re-confirmed or newly recognised. It
needs to be underlined that the consultant will do its best, together with the beneficiaries to minimise the risk factors. The risks, assumptions and difficulties associated with achieving agreement on co-ordinated transport policies
are largely in line with those covered by the consultant’s technical offer.
Main constraints/risks are:
• There is still the habit to create individual bi-lateralised agreements and preferential treatments rather than creating agreements based on international standards. Standards adopted are frequently outdated and thereby additional costs are incurred.
• Not unexpectedly, there is a desire by each individual country to secure the highest returns for itself, rather than
taking a regional view. This attitude manifested itself during the inception phase in subdued interest in regional
harmonisation on the part of some of the countries, as well as in a lack of full cooperation during the establishment of the project. The regular EWG meetings foreseen will help to overcome these difficulties and misconceptions. It is also important to have the regional experts on board and to explain any new concepts very carefully. They should be encouraged to act as champions for the new policy directions. Their support is vital to
help convince the policy decision makers on the merits of the project proposals.
• The weak legal implementation and control mechanisms in place (as demonstrated by the gap between regulations/agreements and their practical application and enforcement) is reflected in the violations that have been
reported.
• In the economic field, information on cost tariffs and tariff setting procedures for road transport have an impact
on questions of commercial secrets of transport operators. The consultant’s opportunities for progress in this
field will mainly depend on the willingness and interest of the countries concerned to cooperate. This also applies to the interviews to be conducted by the consultant as part of the field-work.
• The benefits of free market entry for operators (including cross-border services) and fair competition on price
and quality of service (subject to strict regulation on safety and environment) are still not fully appreciated there is still a preference in some quarters for over-regulation, monopolies and state run operations.
Inception Report
24
•
•
In consequence of the ongoing problems in setting up the antenna office in Kyrgyzstan, problems may occur in
the practical organisation of project work and events in that country. Nevertheless, the consultant will continue
efforts to overcome these problems in the shortest possible time.
The reorganisation of the project team with more regional legal experts will lead to higher than foreseen travel
and incidental expenses. Efficient work planning and organisation will minimise these additional costs.
3.5
Project planning
3.5.1
Work plan
The updated work plan for the project containing
the overall plan of operations,
the overall output performance plan and
the plan of operations for the next period (work programme for August 2007 - November 2007)
•
•
•
is attached in the standard format in Annexes 1 to 3 of the present report.
A more detailed plan including the rostering of the expatriate personal, working steps and the schedule of EWG
meetings is provided in Annex 4.
The plan of EWG meetings to be held has been developed in accordance with the findings of the inception phase.
Accordingly, it is planned that that there will be the following activity schedule:
•
•
4 EWGs by the end of the review and clarification phase on legal issues at national level (1 in each beneficiary
country) in order to analyse the respective country specific harmonisation requirements.
5 centralised regional seminars on legal harmonisation, PPP, freight market/logistics and traffic safety respectively. Centralised regional seminars will be held for consolidating the results obtained at national level and discussing documents, policy papers, MoUs, communiqués, draft laws, rules and regulations.
The main meetings that have been performed and which are scheduled at this stage are shown below. These meetings represent major milestones in the project’s progress. Agreement is necessary at each meeting before moving on
to the next stage. It has been found from past Central Asian country experience that the signing of agreed protocols
after each meeting is an effective way to achieve this.
Meeting
Initial co-ordination meetings
(completed)
Kick-off meeting (completed)
HLG workshop for phase 2, together with SC 1 meeting
SC 2
HLG workshop for phase 3, together with SC 3 meeting
SC 4
Final presentation of results together with SC 5 meeting
Inception Report
Date
May - July
2007
Purpose
With MoTCs and strategic partner organisations.
Astana (2); Bishkek (1); Dushanbe (1); Tashkent(1); a detailed list of meetings and persons met is provided in Annex
8.
August 2007 Discussion approach and organisation of project, presentation
initial findings. Discussion of HLG and Steering Committee
(SC).
November
Presentation, discussion and agreement on findings of review
2007
and clarification phase and project progress. Agreement on
way forward.
February
Presentation, discussion of and agreement on project findings
2008
and progress. Agreement on way forward.
May 2008
and progress. Agreement on way forward. Presentation, discussion and agreement on Draft Coordinated Policy Action
Plans. Incorporate revisions.
August
2008
and progress. Agreement on way forward.
October 2008 Presentation of Draft Final Report to beneficiaries. Presentation, discussion of and agreement on project conclusions and
way forward.
25
3.5.2
Deployment of experts
Based on the experience and findings of the inception period, a certain re-allocation of professional input took place
in order to meet the project requirements.
As already pointed out in Task 7, it is advisable to terminate the existing legal long-term senior expert contract, to
reduce the international expertise and to utilise instead additional regional/local experience in the legal field. Thus, it
is proposed to:
• Replace Mr Olivier d’Auzon by an international legal specialist with the following qualifications:
− Experience with the practical handling and application of international transport legislation
− Ability to co-ordinate a regional team of legal transport specialists
− Experience regarding the liaison with Ministries and international organisations
− Russian language capability.
• Contract additional regional legal transport law specialists with comprehensive knowledge of the existing transport law in Central Asia.
Alternative CVs will be presented to the EC Delegation’s task manager for approval.
Based on the proposed re-allocation of professional input, the work and staff assignment plan has been redesigned
and is included in Annex 4.
3.5.3
Reporting
In accordance with the ToR, the reporting schedule remains as follows:
Report
Date
Purpose
Inception Report (Phase 1)
Delivered
in Presentation of initial findings; recommended changes in apAugust 2007 proach, timetable, staffing, etc.; institutes, organisations, consultants directly involved in implementation. Define work packages
for EWGs. Meeting schedule. Schedule of working papers.
Seminar programme.
Progress Report I (Phase 2)
November
2007
Report on clarification and review phase.
Progress Report II
(Phase 3)
April 2008
Report on Draft Action Plans - short, medium and long-term
(priority for regional road transport market).
Report on technical and financial progress, including agreed action plans.
Draft Final Report
October 2008
Presentation of final conclusions and recommendations to beneficiaries.
Final Report
November
2008
Incorporation of all comments on DFR.
There will also be working papers and reports on specific technical and policy subjects produced on a regular basis
throughout the duration of the project, together with draft legislation, MoUs, etc. for discussion with the beneficiaries. The likely legislative topics have already been covered above.
Inception Report
26
Annex 1
Overall plan of operations
Overall Plan of Operations
Project Title: Development of Co-ordinated National Transport Policies
Planning Period: August 2007 - November 2008
Project Objectives:
1. Preparation of national transport policies and directions for related action plans
2. Development of short, medium and long term policy
3. Clear legislative framework
4. Development of a regional road transport market in Central Asia, including feasibility study for the establishment/modernisation of logistic centres for road freight
Months
Inputs
Activity
May
June
July
Aug
Sept
Oct
Nov
Dec
Jan
Feb
March
April
May
June
July
Aug
Sept
Oct
EC Consultants
(working days)
10
Activities Phase 1 - Inception phase
Activity 1.5
Personal
Nov
Training needs analysis
uipment and Materi
Other
Counterpart
(working days)
Activities Phase 2 - Review and clarification phase
Activity 2.1
Activity 2.2
Activity 2.3
Activity 2.4
Activity 2.5
Activity 2.6
Activity 2.7
Activity 2.8
Activity 2.9
Activity 2.10
15
15
30
30
40
25
25
15
15
Review of present situation
Convention/agreement membership
Application of legislation
Management systems assessment
Analysis of results/benchmarking
SWOT
Freight legislation package collection
Presentation, guiding principles
Phase 2 HLG meeting (major milestone)
Prepare Phase 2 Report
Activities Phase 3 - Planning and implementation phase
Activity 3.1
Activity 3.2
Activity 3.3
Activity 3.4
Activity 3.5
Activity 3.6
Activity 3.7
Activity 3.8
Activity 3.9
Activity 3.10
Activity 3.11
Activity 3.12
Activity 3.13
Meetings
Elaborate action plans
Logistics centres pre-feasibilty study
Prepare Progress Report I
Regional road transport market
Prepare Phase 3 report
Coordinate action plans
Prepare Progress Report II
Arrange study tour
Publicity & website development
Prepare Draft Final Report
Draft Final Report presentation (major milestone)
Prepare Final Report
Coordination Meetings (four countries)
Legal Expert Working Group meetings 1 - 4 (four countries)
Centralised Regional Seminars
Steering Committee Meetings
30
250
30
366,5
60
70
Legal & PPP
Legal
Freight/Logistics
Safety
Legal
Total
(based on an estimated input during inception phase of 220 working days)
60
25
80
10
1201,5
To be determined Physical goods,
at HLG 1
such as office
equipment
(computers,
printers, fax
machine,
photocopy
machine, furniture,
stationery)
Human resources
of the local direct
support staff
(project
assistants,
secretaries,
drivers,
accountant)
Approved
communication
and travel costs
Interpretation and
Annex 2
Project title:
Contract number:
Development of Co-ordinated National Transport Europeaid/122076/C/SER/Multi (re-launch)
Policies
Planning period: May 2007 - November 2008
Outputs
•
Prepared in: August 2007
Agreed Objective Verifiable Indicators
Country:
Pages: 2
Republic of Kazakhstan, Kyrgyz Republic, Republic
of Tajikistan, Republic of Uzbekistan, Republic of
Turkmenistan
EC Consultant: GOPA/TRADEMCO
Constrains and Assumptions
Deliverables
-
-
-
-
-
-
-
Project website concerning project
Presentation of results in Progress Report; project
activities and results in English and Russian reports/working papers and training materials on major topics
(December 2007)
published on website; existing link-up to other websites of
strategic partner organisations (MoTCs, transport associations,
etc.).
Short, medium and long-term action plans Presentation of results in EWGs, Progress Report and Centralised
in each country to coordinate transport
Regional Seminars; presentation of results on project website and
policies (November 2007)
on website of MoTCs as far as established; reports/working
papers on major topics (legal, PPP/road market, safety) prepared
in connection with centralised regional seminars; HLG meetings.
Improved regional co-ordination of national National trade and transport statistics; transport user surveys;
transport policies (November 2008)
expert interview (transporters; forwarders).
Project has to proceed with work on website design; active participation of
MoTC experts and strategic project partners in EWGs assumed; MoTCs
have to continue up-dating of their individual websites.
Active participation of MoTC experts and strategic project partners in
EWGs assumed; proposed actions might contradict national transport
policies and/or transport development strategies; the depth of possible
investigation will depend on willingness of MoTCs and private transport
sector operators to collaborate.
Firm will of beneficiaries to sustain co-ordination of transport policies in
economically efficient manner; close co-operation between MoTCs and
customs authorities; alleviation of political/security problems between
beneficiaries affecting transport.
Rationalised transport network formation Progress Report; MoTCs infrastructure development plans.
Availability of information and data needed for analytical purposes;
approach; improvement/extension of
private sector interest and participation in infrastructure planning and
logistic centres (November 2008)
development; interest of the IFIs in PPP is unclear at the moment, taking
into account the already ongoing involvement in other transport sector
projects.
Improved legislative framework (November Increase in imports/exports; lower transport costs/tariffs; faster
Firm will and commitment of beneficiaries to sustain co-ordination of
2008)
travel times; fewer border and transit delays; improved logistic
transport policies in economically efficient manner; close co-operation
centres’ regional network plans; increased intermodal activity
between MoTCs and customs authorities; alleviation of political/security
(containerisation); IRU border waiting times survey.
problems between beneficiaries affecting transport.
Pre-feasibility assessment of the logistics Presentation of results in Progress Report and Centralised
Active participation of MoTC experts and strategic project partners in
centres (March 2008)
Regional Seminars; presentation of results on project website and EWGs assumed; problems can occur in practical organisation of necessary
on website of MoTCs as far as established; reports/working
site visits in beneficiary countries; a possible constraint may be the lack of
papers.
reliable data on traffic flow situation.
More efficient regional road transport
Increase in imports/exports; lower transport costs/tariffs; faster
Commitment of beneficiaries to sustain co-ordination of transport policies
market (November 2008)
travel times; fewer border and transit delays; improved logistics in economically efficient manner; close co-operation between MoTCs and
centres’ regional network plans; increased intermodal activity
customs authorities; alleviation of political/security problems between
(containerisation); IRU border waiting times survey.
beneficiaries affecting transport.
-
-
•
•
Participation of major stakeholders from public and private sector in
EWGs, Centralised Regional Seminars and HLG.
-
HLG established (October 2007)
HLG meetings held; presentation of meeting results in Progress
Report.
-
Study tour for three participants of each
participating country to one TRACECA
country and one member state of the EU
(June 2008)
Study tour carried out; presentation of programme and results in
project progress reports.
Project has to proceed with work on data base design; active participation
of MoTC experts and strategic project partners in EWGs assumed; a
possible constraint is that most legal texts are available in Russian version
only, making the establishment of a bi-lingual data bank rather difficult if
not impossible.
Active participation assumed of major stakeholders from public and
private sector as well as firm will and commitment of beneficiaries to
sustain co-ordination of transport policies in economically efficient
manner.
Problems might occur concerning the practical organisation of the study
tour; constraints only with respect to budgetary aspects.
Inception Report (Phase 1) produced and distributed.
-
Contractual reports including technical aspects
-
•
Increased problem awareness among major All reports/working papers submitted and agreed; EWGs and
stakeholders (November 2008)
Centralised Regional Seminars held; numbers of participants and
people trained.
Legal database established (February 2008) Presentation of results in EWGs, Progress Report and centralised
regional seminars; presentation of results on project website and
on website of MoTCs as far as established.
Inception Report (Phase 1)
Technical reports including contractual aspects
-
Progress Report I (Phase 2)
Progress Report I (Phase 2) produced and distributed.
-
-
Progress Report II (Phase 3)
Progress Report II (Phase 3) produced and distributed.
-
-
Draft Final Report
Draft Final Report produced and distributed.
-
-
Final Report
Final Report produced and distributed.
-
Technical reports
-
Report on Legal Experts Working Group
Meetings
-
Report on Centralised Regional Seminars
Report on Legal Experts Working Group Meetings produced and EWGs established and functional; meetings held and recommendations
distributed.
given; constraints may be insufficient collaboration and co-ordination or
lack of willingness within the EWGs.
Report on Centralised Regional Seminars produced and
Centralised Regional Seminars established and functional.
distributed.
Annex 3
Plan of operations for the next period (work programme)
Plan of Operations for the Next Period (Work Programme)
Project Title: Development of Co-ordinated National Transport Policies
Planning Period: August 2007 - November 2007
Project Objectives:
1. Preparation of national transport policies and directions for related action plans
2. Development of short, medium and long term policy
3. Clear legislative framework
4. Development of a regional road transport market in Central Asia, including feasibility study for the establishment/modernisation of logistic centres for road freight
Months
Inputs
Activity
May
June
July
Aug
Sept
Oct
Nov
EC Consultants
Activities Phase 1 - Inception phase
Activity 1.5
Equipment and
Materials
Personal
Other
Counterpart
10
Activities Phase 2 - Review and clarification phase
Activity 2.1
Activity 2.2
Activity 2.3
Activity 2.4
Activity 2.5
Activity 2.6
Activity 2.7
Activity 2.8
Activity 2.9
Activity 2.10
15
15
30
30
40
25
25
15
15
SWOT
Activities Phase 3 - Planning and implementation phase
Activity 3.1
Activity 3.2
Activity 3.3
Activity 3.4
Activity 3.5
Activity 3.6
Activity 3.7
Activity 3.8
Activity 3.9
Activity 3.10
Activity 3.11
Activity 3.12
Activity 3.13
Meetings
Arrange study tour
Legal Expert Working Group meetings 1 - 4 (four countries)
30
30
8
Legal & PPP
Total
288
To be determined
at HLG 1
Physical goods, such as
office equipment
(computers, printers, fax
machine, photocopy
machine, furniture,
stationery)
Human resources of the
local direct support staff
(project assistants,
secretaries, drivers,
accountant)
Approved communication
and travel costs
Interpretation and
translation
Workshops and seminars
Annex 4
Detailed revised project work plan and staff assignment plan
Annex 5: Detailed revised project work plan and staff assignment plan
Months
Activity
No.
May
June
July
Aug
Sept
Oct
Nov
Dec
Jan
Feb
March
April
May
June
July
Aug
Sept
Oct
Nov
Phase 1 - Inception phase
Activity 1.1
Activity 1.2
Activity 1.3
Activity 1.4
Activity 1.5
Activity 1.6
Initial findings
Define EWG work packages
Kick-off meeting (major milestone)
Schedule of meetings, working papers, seminars, visits
Prepare Inception Report
Responsibility
TL
TL
TL
TL
TL
TL
Delayed
Phase 2 - Review and clarification phase
Activity 2.1
Activity 2.2
Activity 2.3
Activity 2.4
Activity 2.5
Activity 2.6
Activity 2.7
Activity 2.8
Activity 2.9
Activity 2.10
SWOT
Phase 2 HLWG meeting (major milestone)
TL
TLS
TLS
TL
TL
TL
TLS
TL
TL
TL
7/11/07
Phase 3 - Planning and implementation phase
Activity 3.1
Activity 3.2
Activity 3.3
Activity 3.4
Activity 3.5
Activity 3.6
Activity 3.7
Activity 3.8
Activity 3.9
Activity 3.10
Activity 3.11
Activity 3.12
Activity 3.13
Meetings
Phase 3 HLWG meeting (major milestone)
Arrange study tour
Legal Expert Working Group meetings (four countries)
TL
TL
TL
TL,TLS
TL
TL,TLS
TL
TL,TLS
TL
TL
TL,TLS
TL
TL,TLS
TL
TLS
TL.,TLS
7/11/07
7/4/08
7/4/08
Start-up meetings
Follow-up meetings
LEWG 1 - 4
Kick-off meeting
Legal & PPP
SC 1
Legal
SC 2
Freight/Logistics
SC 3
Safety
SC 4
Legal
SC 5
Experts
Position
Working Days
Key Expert 1
To be nominated
Transport Law Specialist (TLS)
Additional Experts
To be nominated
Regional Transport Law Specialists
Key Expert 2
Franz Josef Götz
Road Transport Economist / Team Leader (TL)
Antenna office 1
Antenna office 2
Antenna office 3
Antenna office 4
Senior Transport Policy/Law Specialist (p/t Almaty/Astana)
Senior Transport Policy/Law Specialist (p/t Bishkek)
Senior Transport Policy/Law Specialist (p/t Dushanbe)
Senior Transport Policy/Law Specialist (p/t Tashkent)
120
120
120
120
Short-term pool
Senior short-term Specialists as approved
137
18
21
23
4
189
300,5
14
21
23
8
14
21
21
21
21
10 21
21
10 21
11
15
21
21
315
1421,5
Bernd Brunnengräber
George Emmanoulopoulos
Backing-up (GOPA)
Backing-up (TRADEMCO)
Annex
Annex65
Project
Projectarea
areacharacteristics
characteristics
ANNEX 5: PROJECT AREA CHARACTERISITCS
1.
Overview
Coming from international experience, it is an established fact that there is a close correlation between GDP growth
and growth in goods traffic9. Economic growth trends of the area countries can be seen from the table below.
Table 2:
Economic growth trends of the area countries
KAZAKHSTAN
GDP at market prices (Tenge bn)
Real GDP growth (%)
Population (m)
Export of goods (%)
Import of goods (%)
KYRGYSTAN
GDP at market prices (Som bn)
Real GDP growth (%)
Population (m)
Export of goods (%)
Import of goods (%)
TAJIKISTAN
Real GDP growth (%)
Population (m)
Export of goods (US$ m)
Import of goods (US$ m)
UZBEKISTAN
Real GDP growth (%)
Population (m)
Export of goods (US$ m)
Import of goods (US$ m)
2002
3.776
9.8
14.9
22.6
4.3
2003
4.612
9.3
15
5.5
-4.1
2004
5.87
9.4
15.1
10.5
14.5
2005
7.392
9.4
15.2
NA
NA
2006
8.975
8.5
15.3
NA
NA
2002
75.4
0
5
8.1
13.1
2003
83.9
7
5
5.3
16
2004
94.4
7.1
5.1
14.8
18.5
2005
100.1
-0.6
5.1
NA
NA
2006
107.9
2.5
5.1
NA
NA
2002
9.1
NA
6.250
839
859
2003
10.2
NA
6.376
652
688
2004
10.8
NA
6.507
697
688
2005
6.7
NA
6.64
798
881
2006
7
NA
6.732
915
1.375
2002
3.776
3.1
25.5
2,510
-2.186
2003
4.612
1.5
25.8
3,240
-2.405
2004
5.87
7.4
26.2
4,290
-3.21
2005
7.392
7
26.3
4,740
-3.64
2006
8.975
NA
26.6
5.47
-4.19
Source: Economist Intelligence Unit, 2006; EBRD Transition report up date 2006
Increasing transport performance will be needed in order to meet the mobility requirements of the growing economies of the CARs. The impressive economic growth of the past, although with different levels of success in the individual CARs, puts pressure on the region’s transport sector to keep up with growing and diversifying demands.
In conclusion, the prevailing lack of international transport facilitation is incompatible with the macro-economic
development trends and transport development requirements of the region as further illustrated in more detailed
Annex 7.
9
By way of comparison: Between 1970 and 1990, GDP in the EU rose by 70 percent, while goods transport performance rose by
60 percent. ECMT Round Table 119
2.
Intra-regional versus interregional trade.
As can be seen from the table below, intra-regional trade among the CIS and area countries is far less than interregional trade. This again underlines the importance of the present project which aims at transit facilitation for the
economic well-being of the area countries.
Table 3:
Intra-and inter-regional merchandise trade, 2005
Countries
Kazakhstan
Kyrgyz Republic
Tajikistan
Turkmenistan
CIS
14.6
45.1
19.6
45.4
Exports
Share %
All other countries
85.4
54.9
80.4
54.6
CIS
46.9
61.9
65
29.3
Imports
Share %
All other countries
53.1
38.1
35
70.7
Source: WTO 2006 International Trade Statistics
As Central Asia transport becomes increasingly international, the philosophy for policy coordination therefore needs
to be: “Think global, plan regional, act national.” Most evident: transport safety and security cannot stop at borders.
The figures reconfirm what was stated in the GOPA - TRADEMCO technical offer already earlier:
In view of the small size of individual domestic markets and intra-regional trade, the concept of creating regional/sub-regional logistic hubs at the breaking points of inter-regional/international traffic to and from the project area is seen as an effective way to secure economies of scale and ensure viability.
3.
Country-specific characteristics of the Central Asia region
Transport demand is derived demand, stemming from the need to transport goods from production centres to the
markets, and people from homes to working places and markets. The understanding of economic and trade characteristics leads to the understanding of transport requirements and is considered essential for demand-oriented transport policy formation and co-ordination.
At first sight, the following can be observed:
Kazakhstan: Kazakhstan is by far the most modernised country of the project region. The country belongs to several overlapping regional organisations such as, for example, the Eurasian Economic Community (EURASEC) and
the Shanghai Cooperation Organisation (SCO). Recently, Kazakhstan and Russia in particular have stepped up economic cooperation, with Russia remaining the single largest trading partner10. At the same time China is becoming
an increasingly prominent economic partner. Chinese sales are largely made up of consumer goods, while Russian
sales to Kazakhstan include raw materials and machinery. German sales again consist of capital goods for oil, gas
and construction sectors.
Economic growth is fuelled by oil exports and related investments. Massive oil revenues have strengthened the
country’s fiscal position. Continued strong economic growth in the order of 9% annually calls for adequate investment in transport. Taking the ADB established transition indicators for assessing progress in transition11, Kazakhstan qualifies as a transition economy with significant progress made towards the standards of a modern open market economy. This is depicted in the transition indicators table of 2004 and 2006 from EBRD (see relevant table in
Annex 6). Overall, private sector market share of GDP reaches 75%.
10
11
EIU Country Report, October 2006
EBRD Transition Report 2004, and update 2006
However, economic progress has taken its toll: The transport safety indicators have reached negative record highs
compared to world level, and – as acknowledged in the national Transport Strategy Paper – transport capacity bottlenecks increasingly occur12.
At first sight, investment needs for transport infrastructure should be focused mainly on:
• Road maintenance and rehabilitation;
• logistics centres;
• replacement of rail rolling stock; and
• rail new line construction, capacity enhancement, raising of speed limits and electrification.
Kyrgyzstan: The current administration is considered fundamentally weak13, which carries some risks for the present project dealing with “transport policy co-ordination and implementation”. The government has pledged to make
the attraction of foreign direct investment a priority issue, which can be considered a positive development considering potential private transport sector investments in logistics envisaged by the project. GDP growth recovered and
has been party driven by the upgrade of three main roads (Bishkek-Osh; Bishkek-Korday; Taras-Suusamir).
Nevertheless, reported bad road network conditions seriously hamper Kyrgyzstan’s social and economic growth.
The country, having achieved a private sector share in GDP of 75% overall, ranges high on the ADB transition indicator scale.
Tajikistan: The country has enjoyed years of substantial GDP growth. In fact, the general impressions gained during the project mission to Dushanbe have been thoroughly positive. It is feared that the traditional sources of growth,
especially aluminium and cotton, may face capacity problems, pointing to the need of economic diversification.
Overall, however, Tajikistan scores low on the ADB transition indicator scale. Further progress in poverty alleviation is crucial and will require more private investment and especially the removal of non-physical trade barriers.
At present, according to information received from local transport enterprise, illegal payments amount to 30% or
more of the total cost of road transport from Dushanbe to Turkey14, rendering certain products unmarketable.
Problems are also encountered concerning transport via Russia: In view of an unsatisfactory level of service provided by customs authorities’, time occasionally takes up to 20 days from Dushanbe to Moscow, instead of the normal 6 to 7 days.
Violations of a number of provisions of the applicable conventions and regional treaties (for example, TIR Convention, MLA, etc.) have been reported for transit cargo via Uzbekistan and Kazakhstan.
Bearing in mind that 45 to 50 % of export goods transported by road currently are perishable goods, the transit
time issue should be regarded as one of the most pressing problems. Particularly long hold-ups make it impossible or at least very difficult to export perishable agricultural products which are one of the mainstays of the country.
Uzbekistan: Official figures report robust economic growth. One of the best performing sectors is the automotive
industry (former joint venture Daewoo Motors), which again is almost entirely state-owned. Substantial liberalisation of the economy is lacking and according to EBRD “restrictions on foreign trade and access to foreign currency
are impeding regional co-operation”.
Uzbekistan qualifies as a transition economy with relatively little progress made towards the standards of a modern
open market economy. This is depicted in the transition indicators table of 2006 from EBRD (see relevant table in
Annex 6). Overall, the private sector share in GDP is low (45%); import tariffs can reach up to 70% on imports of
non-food products and constitute a serious problem for international trade. New Russian and Chinese investment in
the oil and gas industry however is believed to maintain economic growth15. Border-crossing transport facilitation is
hampered by the fact that relations with Tajikistan remain tense.
12
Transport Strategy of the Republic of Kazakhstan up to 2015, approved by the Decree of the President of the Republic of Kazakhstan as of April 11, 2006.
13
EIU Country Report, November 2006
14
According to ad-hoc interviews with transporters organised by the Association of International Automobile Carriers of Tajikistan.
15
EIU, Country Report, March 2006
At first sight, investment needs for transport infrastructure focus mainly on:
• Road maintenance and rehabilitation;
• logistics centres (although initial estimates suggest that private interest could be inhibited weak traffic flows);
• replacement of rail rolling stock; and
• rail new line construction, capacity enhancement, raising of speed limits and electrification.
Turkmenistan: Turkmenistan received the lowest scores in the EBRD’s assessment of transition progress. Private
sector contribution to GDB overall remained at estimated 25%. Unfortunately, due to time restraints and resource
limitations, there was no opportunity during the inception phase to visit the country and gain direct impressions.
4.
Central Asia: Logistics needs and preparedness
According to an ESCAP survey, approximately 200 dry ports were located in Europe in 2005, providing important
logistic services to industry and trade. In the United States of America, there are approximately 370 major inland
container depots, and at least 200 smaller ones. Yet, less than 100 such facilities exist in the ESCAP region, suggesting that the region is logistically undersupplied despite differences in geographical and population sizes.
In Asia, much of the discrepancy may be explained by the different purposes for which dry ports have usually been
constructed. In many countries, dry ports have been used primarily as a tool to relieve seaport congestion rather than
to promote hinterland development. Seaport container throughput therefore is a good predictor of the number of dry
ports in many Asian countries – more effective than output measures such as GDP, for example. The ESCAP secretariat estimates that in the ESCAP region there is approximately one dry port per million twenty-foot equivalent unit
(TEU) of containers handled at a country’s seaport.
Assuming that Asia will gradually move towards utilising logistics centres (or dry ports) to develop hinterlands, the
secretariat estimates that there may be a need for an additional 200 facilities in the ESCAP region by 2015, making a
total of approximately 300. This estimate is based on an assumed economic transition scenario for the region.
The ESCAP secretariat considers these estimates to be conservative: the “no transition” case (keeping container
throughput as the dominant determinant), yields an estimate of 275 dry ports by 2015. Moreover, if the forecast of
approximately 300 dry ports by 2015 proves correct, only two countries, China and India, would exceed the number
of dry ports currently operated for example in Germany. Alternatively, assuming a faster transition to a situation
similar to Europe and capacity adjustments for existing in sea ports of the region, long-term demand for dry ports in
the ESCAP region could be around 600 to 700.
The ESCAP secretariat estimates that, by 2015, there may be a need for 130 dry ports in China, 69 in India, 10 in
Kazakhstan, 12 in the Republic of Korea, 4 in Sri Lanka, 3 in Thailand, 2 in Bangladesh, and 1 each elsewhere.
As to the dimension of such logistic centres, in the EU, there is considerable variation in the average size of dry
ports in terms of throughput (typically between 40,000 to 1.9 million TEU throughput per year), land area (typically
between 30-200 hectares), number of firms operating the logistics centre (typically between 25-100) and overall
employment (ranging from 7,000 to around 37,000 people).
In Central Asia, there are already logistic centres in operation where container handling is practiced, but most of
these facilities are currently underused, poorly equipped and in need of modernisation.
Illustrative examples in this regard are the Cotton Consolidation Centres of Uzbekistan at Bukhara and the Churkursay inter-modal terminal, both of which are only embryonic logistic hubs. Poorly developed and characterised by
ample spare capacity is the rail/road-terminal of Tajikistan in Dushanbe (visited during inception period), and reportedly also the logistic structure of Khojand and Kurgan Tybe.
The further development of the logistics network needs to be demand-driven. Currently both, the imbalance of trade
as well as the rather low volumes of high value added cargo raise the question of investments feasibility.
5. Transport policy background
Transport policy decisions affect mobility and influence economic and social welfare. As a consequence they involve
the “strategic responsibility of Governments” 16 . Moreover, in the case of border-crossing transport, only coordinated policy decisions can guarantee utmost efficiency and fair distribution of benefits at regional level. Neither
security of transport can be assured without national policy co-ordination.
1.
International and regional policies: major stakeholders, programmes and initiatives of relevance
A number of international organisations are dealing with transport policy at regional and global level.
As regards the European Commission, integrated European policies and the development of reliable and sustainable transport systems were from the very beginning the guiding principles of transport network development. As a
result, the Trans-European Transport Network (TEN-T) today forms the backbone of European economic life. Its
continued improvement and enlargement – although this process is far from being completed – has strongly contributed to the social and economic cohesion of Europe, the reduction of regional disparities and poverty alleviation.
The basic principle of European transport system development and consolidation has always been and still is first
harmonisation, then integration. European experience and lessons learnt from transport development culminated
in the formulation and adoption in 2001 of the European Commission’s White Paper17 “European Transport Policy for 2010: Time to Decide”. The paper’s main imperative being “sustainable transport development” (i.e. to put
every mode of transport into its proper place, to turn inter-modality into reality, to focus on targeted network investments, to improve transport safety and to manage the effects of globalisation), it can be seen as a manual on
good and modern transport development practice also for the project area countries.
The fundamental policy guiding principles of the EC’s White Paper on transport are reflected in the TACIS programme, under which the present project is financed, and which provides the operating framework for regional cooperation and the EC transport-related priorities for Central Asia, including:
• Assistance which promotes administrative capacity and legislative harmonisation;
• differentiated approach to the groups of countries participating in TRACECA;
• promoting railway interoperability and European standards;
• implementation of international agreements (TIR, ADR);
• focus on safety and security aspects;
• promotion of motorways of the sea concept (short-sea shipping);
• continued emphasis on regional co-operation and harmonisation of border crossing; and
• improving links between TRACECA and the enlarged EU through the relevant Pan-European Corridors and the
Black Sea Pan-European Transport Area (PETrA).
All countries of the project region except Turkmenistan are members of TRACECA in the sense that they have
signed and ratified the Multilateral Agreement (MLA) that has created the TRACECA stand-alone organisation.
For more than a decade, TRACECA’s main aim has been to develop the identified East-West Corridor between
Europe, the Caucasus, the Caspian and Black Sea and Central Asia. More recently, the focus has been put on
TRACECA network development.
The common aim of TRACECA member states, as it always has been, lies in the general facilitation of international
trade and transit. The detailed strategic guidelines defined by the Intergovernmental Commission (IGC) of
TRACECA for the development of its transport networks reflect Commission policy principles.
Apart from the European Commission’s involvement in regional transport, the OSCE (Organisation for Security
and Co-operation in Europe), focused on transport network security issues, is another main promoter of regional cooperation. More particular, OSCE sees its role and responsibilities in addressing the specific problems of landlocked
countries, including Central Asia. Furthermore, OSCE participating states have decided to support the Almaty Dec-
16
As well stated in the OSCE Background Paper to the First Preparatory Conference for the 14th OSCE Economic Forum held in
Tajikistan Dushanbe on 7/8 November 2005.
17
http://europa.eu.int/comm/transport/index_en.html
laration and the Almaty Programme of Action18 with a view to improving the transit potential. To this end, an
OSCE Transit Transport Conference will be held in Dushanbe/Tajikistan during 23 and 24 October 2007, to which
the project will try to link up.
The United Nations Economic Commission for Europe (UNECE) also concentrates part of its work on regional
transport matters, aiming at harmonising transport policies and norms and standards. It has a most outstanding record and experience in developing international legal instruments in transport. The adherence to UNECE rules is
considered essential for uninterrupted functioning of transport services, as well as for ensuring safety and environmental compatibility.
Intervention of UNESCAP19, the United Nations Economic Commission for Asia and the Pacific, in the project
area are motivated by the fact that the fast growing countries of the ESCAP region (China, Iran, possibly Pakistan)
are increasingly interested in the promotion of their trade with CARs, as well as in transiting their exports via CARs
to the Russian Federation, Ukraine, the Baltics and Western Europe.
In fact, as data obtained during the inception phase clearly demonstrate, Kazakhstan emerged as key player on the
land transportation scene in the mainland Asia region. The UNESCAP is supporting the development of inter-modal
transport.
UNESCAP secretariat has recently completed a comprehensive study on national coordination mechanisms for trade
and transport facilitation in the ESCAP region, the results and recommendations of which will be taken into close
consideration in future project working groups. This relates in particular to the specific recommendations and guidelines established on the occasion of a UNECE-UNESCAP national workshop on the facilitation of interregional
transport along Euro-Asian transport links held in Tajikistan in December 2006.
The United Nations Special Programme for the Economies of Central Asia (SPECA) again is a joint undertaking for the Central Asian countries, UNECE and UNESCAP. The recent 11th session of the SPECA Working Group
on Transport and Border Crossings held in Almaty in March 2007 underlined the importance of effective coordination and co-operation among all relevant players concerning the formulation and implementation of international transport facilitation measures. As major policy guideline, the SPECA Working Group recommended the establishment or strengthening of transport facilitation committees at a national level.
Apart from TRACECA, the ADB’s CAREC (Central Asia Regional Economic Cooperation Programme) involved in trade facilitation (covering Azerbaijan, Uzbekistan, Afghanistan, China, Kazakhstan, Kyrgyz Republic,
Mongolia and Tajikistan) is another high profiled activity in the field of trade and transit promotion. In addition,
USAID, EBRD, Islamic Development Bank and World Bank are active in the project area.
There is great need for close collaboration between the project and ADB, World Bank and EBRD. Especially the
EBRD infrastructure representative met in Almaty expressed great interest in the project’s work agenda and promised close co-operation with the project as a “strategic partner”.
Discussions during the inception phase with EBRD concluded that:
• EBRD’s involvement in Kazakhstan’s transport sector development is mainly focused on supporting and accelerating the transition from planned economy and state intervention to market economy and private sector involvement, and to a certain degree on network development.
• EBRD has undertaken two road projects and one airport project in the past.
• EBRD has been involved in institution building and strengthening, especially as regards issues such as road financing, pavement management systems, road maintenance.
In the opinion of the EBRD, there is a big momentum to do something in transport in the CARs region, especially on
roads, from the side of both the government and the international donor community.
The call for close co-operation especially also concerns the ADB CAREC programme:
18
The Almaty Declaration led to the first global Action Plan endorsed by the United Nations addressing the problems facing
landlocked developing countries.
19
www.unece.org
ADB has started in February 2007 the regional technical assistance for the work on the CAREC Transport Sector
Strategy Study (TSSS) which should be completed by December 2007. The study should address positive and negative effects of transport facilitation and valuable outputs are expected for our project work in the areas of
(i) actual international/regional transport flows, as well as
(ii) transport facilitation recommendations.
Finally, another regionally relevant co-operation activity in the field of transit facilitation extending to Russia is the
Shanghai Cooperation Organisation (SCO)20.
Important stakeholders in the road sector from the non-governmental sector with which the project has already established contacts are the International Road Federation IRF, the International Road Transport Union IRU and the
International Federation of Freight Forwarders Associations, FIATA, and its regional members.
The project’s Team Leader participated as main speaker in the second week after project start up in the “1st Black
Sea and 4th Silk Road Conference” organised by the IRF/IRU in Istanbul, Turkey, on which occasion the present
project could be introduced to a wide range of potential collaborators in the private sector. In particular, there was
good opportunity to start discussions between the project and the IRF on if and how to include the IRF in the work
of the High Level Group (HLG) to be established under the project.
FIATA again has been already involved in TRACECA projects in the field of forwarders training.
As regards instead IRU, it provides excellent road traffic accident statistics with worldwide coverage for crosscutting comparison. IRU works further on the promotion of the TIR Convention and maintains a “Border-Waiting
Time Observatory” which provides full data in real waiting times at both sides of road border crossings, including
Asia, although objective information on this is still scarce.
The Black Sea area countries are an important point of origin and destination of TRACECA and Central Asia
freight. Therefore, the Organisation of the Black Sea Economic Cooperation (BSEC), which promotes the linkup to European and Asian networks through Black Sea Pan-European Transport Area (PETrA) and TRACECA, is
another major player to be involved in the project’s activities, considering the present project’s agenda to promote
private sector involvement in transport network extension.
It is very much hoped that the project succeeds in engaging above organisations into the work of the HLG and its
Expert Working Groups (EWGs). Since the project by TOR is concentrated on the roads sector, the project has refrained from getting into contact with stakeholders from the railways, maritime and aviation sectors such as IATA,
IMO, or OTIF and UIC.
It clearly emerged from the discussions with major stakeholders met during the inception period (see list of meetings
in Annex 8) that there is a need for greater co-ordination through multi-agency oversight and co-ordinating mechanisms.
In essence, the overarching goals to be achieved in the field of regional transport sector development as agreed by
the international community can be summarised as follows:
•
•
•
•
•
•
20
further facilitation of international transport;
Competitive integrated transport systems that are reliable and safe;
Creation of competitive transit tariff policy
realistic action plans focused on “viable” solutions;
environmentally and economically sustainable investments;
increased participation of private sector in transport.
Comprising PRC, Kazakhstan, the Kyrgyz Republic, the Russian Federation, Tajikistan and Uzbekistan.
6.
National transport policies – Common principles and divergences
Generally speaking, national transport policy can take different forms, ranging from government intervention policy
(including legislation and regulatory policy, law enforcement policy and fiscal and tariff policy) through government performance policy (including infrastructure policy and transport services policy) to institution building policy
and finally, privatisation policy.
As defined by TOR, which are strongly focused on legal harmonisation in transport, the present project will deal
mainly with government intervention policy issues such as market entry regulation, tariff regulation and taxation,
transport technical regulation and international transport legislation in the roads sector.
However, the survey and overall assessment of the CARs regional logistic freight centre set-up, a TOR requirement
which responds to the observed underdevelopment of modern logistics structures and services in the project region,
emphasis will be also on infrastructure policy and even more on government privatisation policy matters in the context of PPP finance.
Available policy documents of the various governments show that the project’s TOR are very much in tune with the
different national policy concepts.
All CARs recognise in their policy statements the great (although different) potential of their respective strategic
transit position in Central Asia, connecting traditional trade routes linking Europe to the Asia-Pacific region. At the
same time, they equally acknowledge, that the setting up of an adequate transport and communications infrastructure and efficient transport organisation is a major pre-condition for taking advantage of their natural advantages.
Kazakhstan: According to the Kazakhstan’s Transport Strategy till 2015, the country (i) shall become part of the
world transport and communication system by means of pro-active development of the whole transport infrastructure in the country: (ii) shall adopt a long-term transport strategy which is connected with territorial development;
(iii) shall create a network of modern trunk routes, which allows capturing continental and transcontinental transit in
the north-south and east-west directions; (iv) shall give priority to the establishment of modern hubs – powerful
transport centres that would allow linking not only all the cities and towns within the Republic, but the largest cities
of the world as well.
The Strategy covers railway, road, city passenger, air and water transport, development and effective operation.
In more operational terms, the national Transport Strategy of Kazakhstan establishes following policy directions for
transport sector development:
• to improve the legal sector framework incl. law enforcement mechanisms while promoting self-sufficiency of
transport;
• to develop transport infrastructure using modern logistics principles;
• to follow a policy of market liberalisation and limited government participation;
• to promote regionally even transport development;
• to improve transport safety, and
• to foster innovative transport solutions.
Uzbekistan: Very similar objectives are set in the Uzbekistan Transport Sector Strategy 2006-2020 draft concept
prepared with ADB assistance. In essence, main relevant strategic goals are (a) the introduction of new transport
technologies and equipment; (b) the integration of domestic transport networks into the world transport system,
which of course is foremost a legal and regulatory task; (c) the development of competitive international transport
corridors; (d) the integration of transport , production and distribution processes, establishment of multimodal transport systems, based on logistics principles; (e) establishment of a flexible tariff system; (f) reduction of adverse environmental impact of transport.
It is noteworthy, however, that the Uzbek strategy draft proposal lacks mention of transport safety goals.
Kyrgyzstan: Also the Government of the Kyrgyz Republic clearly acknowledges that “the removal of cross-border
barriers is one of the prerequisites for improvement of transport efficiency”21. Hence, Government transport policy
has as main objectives the promotion of increased transit traffic by means of:
• adequately maintaining infrastructure;
• increasing cost-recovery from users of transport infrastructure;
• privatising transport operations and promoting competition; and
• improving road safety and addressing environmental concerns.
As in Kazakhstan, the road safety situation of Kyrgyzstan has been identified as an alarming problem, although for
different reasons. Therefore, the institutional strengthening of the Road Safety Secretariat established 2004 with the
MoTC needs to be supported in view of the country’s bad safety records.
Tajikistan: Tajikistan has not yet elaborated an integrative Transport Strategy. ADB however is currently financing
a “Study on Development of Transport Strategy” for the MoTC of Tajikistan, which should be finalised by the end
of this year.
For the time being, the National Economic Development Strategy Paper of Tajikistan up to 2015 covers, the main
areas of development of transport (See Chapter 2.4 Road Transport Problems and 4.4 Transport and Communications).
As regards the practical transport policy of the Republic of Tajikistan, it emerged however very clearly from
discussions held with the MoTC during the Inception Period that also the Tajik authorities consider facilitation of
international trade and transport a most critical factor for economic and social welfare.
Considering the country's highly difficult and mountainous geography which encourages regionalism and the fact
that some localities therefore remain difficult for government agencies to govern, it becomes clear that improved
transport and communications infrastructure networks should be a central part of initiatives to boost social cohesion.
Bordering Afghanistan, a rather special transport sector development need for Tajikistan is security enhancement.
All CARs are in principal prepared to tool up for modern logistics.
Logistic improvements are particularly important for landlocked countries, and are consistent with the objectives of
the Almaty Programme of Action. The development of a network of dry ports as load centres also has the potential
to promote traffic on railways rather than roads, which could have significant environmental benefits.
The Government policy of Kazakhstan on Logistic Centres is included in the report “Transport Strategy of the Republic of Kazakhstan up to 2015” , developed in accordance with the Address of the President of the Republic of
Kazakhstan to the Kazakhstan Nation as of March 1, 2006, In this report it says:
“It is needed to develop work on forming a network of transit routes through the air of our country. Special priority
will be given to establishment of the modern hubs – powerful transport centres that would allow linking not only all
the cities and towns within the Republic but the largest cities of the world as well.”
In fact, logistic hubs are being planned for Astana, Almaty, Aktau, and Dostyk border station with China.
As regards Uzbekistan’s policy towards logistics networking, the National Transport Strategy for Uzbekistan (ADB
study) sets the following objectives and requirements:
Development of logistics centres should focus on moving forward from Government policy statements to the physical commissioning of facilities around the country, translating an institutionally-driven approach to one of demanddriven operations. The development of logistics centres for domestic purposes is not yet feasible due to the lack of
demand and of relevant transport resources/expertise. It is important however, to reserve suitable areas for later use
at key transport nodes. These are likely to be on the outskirts of major cities, close to key road and railway junctions.
Demand for international facilities should be addressed first.
Uncertainty about demand is delaying the development of international logistics centres. This applies to the whole
Central Asia area. Easy access to transport data is a key issue. Uzbek Customs do not yet have an automated clear21
MoTC, Road Sector Development Strategy for 2007-2010
ance system to generate imports and exports by origin, destination and commodity code, to simplify demand forecasting. Traffic data in raw form should be made available. This, combined with production data, could provide a
profile of export traffic from point of production to destination required to assess the optimal location for terminals.
A TRACECA 2006 project (Euro5.5 million) entitled “International Logistics Centres/Nodes Network in Central
Asia” is expected to begin in 2007, with Uzbekistan as a lead promoter. The project would assess the demand for
logistics centres throughout Central Asia.
It is still unclear where the delineation line should be drawn between the work of the present project and that of the
much bigger and better funded mentioned above.
Possible government and private sector roles: Successful international experience in seaport as well as dry port ownership and operation reveals a common pattern between public ownership and regulation that is coupled with private
operation and management: around 90 of the 100 largest container and seaports globally operate in this manner, including those in Asia. Government involvement has gravitated towards port regulation, improving transport infrastructure linkages to ports and ensuring competition in the sector
7. Central Asia transport sector characteristics
(1) Network and fleet shortcomings
Based experience and observations made during the various missions to the beneficiary countries, and on the most
recent status reports published by Governments and/or international organisations22, the general picture in the infrastructure fields is summarised below. Since according to the TOR the focal point of the present project will be on
road transport, which is seen as the sector in which most immediate improvements can be achieved, the following
assessment is centred on road network and fleet characteristics. Major key issues are the following:
International logistic providers have remained absent from the project area, with the result of limited logistics organisational know-how and experience and little FDI in logistics structures. This has been largely due to low modern
demands (container), exacerbated by weak legal regulatory environments.
It resulted from the discussion with national authorities that the development of logistics centres is declared Government priority throughout the countries of the project area, although the term “logistic centre” is understood in different ways by the various countries.
In fact, Logistics centres are a comparatively new phenomenon which has not yet received an agreed name. The
main terms for logistics centres known in Europe can be arranged by countries, e.g.:
• in Great Britain logistics centres are called “Freight Villages”,
• in France – “Plate Forme Logistique” or “Plat Forme Multimodales”,
• in Germany – “Güterverkehrszentum”,
• in Italy – “Interporto”, and
• in Denmark – “Transport Centre”.
The most common and widely used term in Japan, Singapore, China and the USA is ‘logistics centre’. The project
will use this term, following the understanding that a logistics centre as an “integrator’ of various transport modes,
able to promote inter-modal transport”. Logistics centres are also known “an inter-modal terminal, which is the principal component of the inter-modal transport chain, constituting the node where the transhipment of goods from one
mode to the other takes place”
The logistic centres (LCs) as part of the international transport chain with sea port access might also be termed as
“dry ports”.
22
Mainly: ADB-CAREC, Transport Sector Status Report, 30.March 2007; ADB-CAREC, Regional Transport Sector Road Map
Update, Urumqi August 2006; Centre of Systems Research of the President’s Administration of the Republic of Kazakhstan, Final State Roads Development Program for 2006-2015, June 2005; Transport Strategy of the Republic of Kazakhstan up to 2015,
2006;
The term “dry port”, according to ESCAP, refers to a defined inland location for the consolidation and distribution
of goods that has functions similar to those of a seaport, and which includes customs clearance services. Seaport
functions that could be expected to be typically present at these dry ports include:
• container (and possibly bulk) handling facilities;
• intermodal infrastructure connections;
• a geographical grouping of independent companies and bodies dealing with freight transport (including, for example, freight forwarders, shippers and transport operators);
• and the provision of accompanying services such as
1. customs inspections,
2. tax payment,
3. storage,
4. maintenance and repair,
5. banking; and
6. information communication technology connections.
The development of logistics structures is directly related to the central issue of trade and transit facilitation:
Dry ports would allow shippers to undertake freight consolidation and distribution activities as well as customs
procedures form inland locations. Completing necessary customs procedures at these facilities could help to minimise delay at borders, and hence, lower overall transit costs.
Possibly with the exception of the Kazakhstan, the generally daunting problem in growth economies of infrastructure bottlenecks which constrain their economic development (as is happening currently in India) is largely absent in
the countries of the project region. And as rightly stated in the ADB’s Uzbekistan Transport Sector Strategy Study,
improved maintenance organisation will positively add to this situation, giving time to plan network improvements.
Nevertheless, pro-active policies are required for modernising area transport and containing negative impacts on society and environment of traffic growth.
In the past, too little money went into regular (routine) infrastructure up-keep. To give two examples: In Kazakhstan, according to official figures, 70 % of the major road network offers poor riding condition. Estimated 13% are
in immediate need of resurfacing, 27 % are in need of mid-term repair works. The situation is worse in other area
countries:
In the Kyrgyz Republic, where road transport is the most dominant mode assuring some 95 % of the movements of
goods and persons, the country’s road network is currently in a poor state.
Based on official 2005 road condition survey, two thirds out of the 4300 km are in critical condition, and one fifth of
the surveyed roads were at such stage of deterioration that the rehabilitation of pavements was assessed impossible23. Only urgent intervention can prevent further degradation. Under these conditions it would be useful, as proposed by the World Bank, to define a core network for immediate attention. The degraded conditions of the network
are a serious constraint for economic and social development. Not only that but also the dangerous road conditions
contribute to the country’s bad accident records.
In short, this account not only recalls the problems described in the project TOR. It adds to them the rather urgent
problems existing as in the area of transport safety.
The region’s fleet of road vehicles and rail wagons is largely old and in need of modernisation. To quote the Uzbek
example: “Some 400 trucks have been imported in the last 10 years of which only some 15 were new.” While there
is substantial capacity in basic vehicles and wagons, specialised transport means such as especially temperature controlled ones are in short supply.
23
8.
Corridor competitiveness/ attractiveness
Central Asian corridor competitiveness is questionable, considering the low quality of services, the comparatively
high cost of transport and the generally high and und unpredictable transport times.
As confirmed by the consultant’s ad hoc expert interviews, the most important problems are inefficient cross-border
and transit movements of goods and people due to inefficiently organised paperwork, poorly equipped border posts
and badly trained customs staff. Procedures, documentation at borders are not entirely in compliance with international standards and practice. Occasionally, international conventions are violated and TIR containers opened.
The present situation keeps consumer prices of imports high, and deprives Central Asian countries of potential trade
benefits especially as regards sensitive cargo. Lack of competition contributes to the unfavourable cost situation. In
the field of perishable goods, the situation is aggravated by the lack of specialised fleet.
Another significant regulatory barrier to cross-border and transit traffic is the complicated, time consuming and expensive visa procedure for foreign vehicles. Even among the CARs, citizens of the Kyrgyz Republic and Tajikistan
need a visa to enter Uzbekistan and vice versa.
9.
Transport market
Restructuring of state owned transport companies, privatisation of transport operations and out-contracting of network maintenance has progressed in the transport sector throughout the region, though with differences from country to country.
Possibly most notable the choice made by Kazakhstan to move towards the market economy made in the beginning
of 90s and the reforms already initiated significantly changed the conditions of transport operation and the nature of
demand for transport services. An important step forward has in particular been the 2004 restructuring programme
for the national railways Kazakhstan Temir Zholy (KTZ), splitting KTZ into several stock companies, although still
state owned. The country has established an Anti-Monopoly-Agency, and several concession projects in transport
are under preparation or in tendering phase.
Throughout the CAR region, lack of competition remains characteristic for the region’s railways sector due to the
monolithic and monopolistic structure of state companies. This has resulted in inefficient service quality, obsolete
track and rolling stock, outdated communications technology and lack of modern billing systems and consignment
information to shippers.
Unlike in the railways sector, private operators dominate road transport services and international forwarding. According to ADB estimates, the share of state-owned companies has been reduced to some 10-20 percent in the individual countries as regards the forwarding sector, and in road transport services ranges from 20 percent in Kazakhstan to 50 % in the Kyrgyz Republic.24
According to the same source, airport services and scheduled air transport services are provided by private operators
only in Kazakhstan (at estimated 40 and 50percent respectively).
IRU has been entrusted with the management of the TIR Convention since it was established in 1959.
The TIR Carnet is a customs transit document used for an international transit operation of goods. Each TIR Carnet
is unique in its number and can be used for one transport. Once the TIR operation has been terminated at the customs office of destination, the driver is handed back the TIR carnet duly endorsed by the customs authorities. Access
to the TIR system for transport operators is given by the national association.
The TIR system has been devised to facilitate international border-crossing transports of goods under customs seal.
Apart from overall trade facilitation (reduced transport documentation costs and delays in transit), the TIR system
offers
24
ADB, Development of National Transport Policies in Central Asia, Progress Report –legal 7June 2007
•
•
•
•
•
•
for the industry: documents are simplified and standardised;
there is no need to make customs guarantee deposits at transit borders;
for customs authorities: only bona fide transport operators are permitted to use TIR carnets, increasing security
the need for physical inspection of goods is reduced, and with it congestion at borders;
the system facilitates control procedures;
use of internal clearance points for exports and imports allows modern logistics and efficient deployment of customs officials.
Despite depicted advantages the TIR system is only rudimentarily developed in Central Asia.
In the Central Asian countries under review, the number of persons authorised to utilise TIR carnets is still very low:
Kazakhstan 192; Kyrgyzstan 16; Uzbekistan 11. By way of comparison, in Ukraine are 1,923.
Equally low is the number of TIR carnets issued by the IRU national associations in 2006: Kazakhstan 32,500 carnets; Kyrgyzstan 11,450; Uzbekistan 4,500; Turkmenistan 1,000; Tajikistan 300. Again compared with Ukraine:
324,000.
Overall, freight forwarding is still rather immature in the region. Nonetheless, the first successful initiatives can be
observed. In Uzbekistan, for example, the AIFU International Forwarders Association (AIFU) exists since 1996 and
is member of FIATA. The AIFU is considered an important local partner for future cooperation under the project. It
needs to mention, that AIFU succeeded in getting the “freight forwarder” included in the national classification of
professions in 2004.
10. Transport sector finance
Assistance to improve the environment with the modernisation of transport, such as in particular the development of
logistic services, is as crucial as improving the non-physical barriers of trade. Efforts in this direction should be
strongly focused on removal of specific obstacles to private sector initiatives and involvement in transport infrastructure finance (example PPP). As a guideline, private sector participation in transport must be promoted with the
objective of lowering transport cost and achieving transport sustainability, as well as better serving transport user
needs, including certain public interest. It is the genuine spirit of PPP arrangements
• to create an alternative means to state project funding;
• to lead to a more focused investment approach through risk sharing; and
• to achieve sustainable transport development.
To take the example of Kazakhstan: Within the “Transport Strategy of the Republic of Kazakhstan up to 2015”,
one of the key principles on which transport network development is to be based is the following:
‘… Transport infrastructure and transport services shall be self-supported at maximum’.
Direct and indirect charges collected from the transport infrastructure users, including transit traffic, shall be used to
repay the costs of maintenance and current repair of transport infrastructure to the maximum possible extent, and if
possible for some capital investments. Cost of transport services shall be fully covered by users, excluding the cases
when the minimum package of transport services is guaranteed by state;
“… Government functions shall be limited to development of transport policy, supervision and financing’.
Direct supply of transport services by public enterprises shall be minimised. All the structural reforms in transport
sector shall be completed and the state enterprises shall be refocused on the infrastructure management functions.
The issues on rendering transport services and infrastructure maintenance shall be transferred to private sector. The
state shall facilitate private sector involvement in implementation of infrastructure projects…’’
Furthermore
‘’…An expected investment need of the transport complex at the time of Strategy implementation is around 3.4 trillion KZT in the prices of 2005, 70% of which will be private investments…’’
It is therefore clear policy intention of the Government to
• Charge users the costs of maintenance and current repair of transport infrastructure to the maximum possible
extent (covering also the cost of some capital investments)
• Minimum transport services are to be guaranteed by state
•
•
The role of the state is to be gradually minimised, with state enterprises keeping the ownership of public transport infrastructures. Transport services and infrastructure maintenance shall be transferred to private sector.
Private Sector is expected to contribute the 70% of needed transport infrastructure investment funding.
Private Sector Participation characterises also Government aspirations in Uzbekistan, So far, state budget however
is the main source of transport sector financing.
A Road Fund for primary roads was set up in 2006 under the Ministry of Finance, to finance maintenance and new
infrastructure. The aim is that this should be financed by transit and fuel taxes. No PSP in the transport sector has
been concluded up to now. International donors like ADB, WB, EBRD have provided Technical Assistance and
loans for few transport infrastructure projects.
Though different from country to country, private sector participation policies are hampered by the progress in legal transition and problematic investment environments.
The case of Kazakhstan
Current position and potential of PSP in the transport sector of Kazakhstan have been pre-evaluated on the basis of
some key parameters regarding the enabling environment, as follows:
1
2
Parameter
Political environment and stability
Economic environment
3
General policy framework for
PSP
4
Concessions specific legal
framework
5
Legal integration
6
Regulatory structures
Current evaluation comments
Relatively stable with high corruption level.
Very high growth levels of the economy as a whole (9-10% GDP growth in last
five years).
Transit transport growth potential is even better due to the strategic position
between China and Europe.
Private sector interest is potentially high in areas like toll roads, road maintenance, rail operations and logistics terminals.
Within the “Transport Strategy of the Republic of Kazakhstan up to 2015” the
government clearly encourages and stresses the importance of PSP to the development of transport infrastructure. Furthermore, it clearly lays down in detail associated policies and target objectives.
‘’…The Public-Private Partnership mechanisms (PPP) will be broadly applied
when implementing infrastructure projects due to the high capital output ration
of the latter. Various PPP schemes will be used to attract private initiative
for construction of new infrastructure facilities…’’
‘’…Basic (main) network of highways and railways as well as inland navigation infrastructure will remain in Government ownership. Terminals
will be gradually handled over to the private sector…’’
‘’…Private sector participation will be encouraged in various areas of transport
sector, including long-term concession agreements under which infrastructure
ultimately will be returned to the state. Public-private partnership schemes
may also include partial infrastructure financing by the state…’’
‘’…Creating enabling environment for development of private business
will be done by providing incentives and preferences encouraging renewal
of basic assets. Programs implementation will be funded out of the national
budget and by active use of PPP mechanisms…’’
However, there is no a Task Force (PPP unit) to build up capacity, stir and
oversee the process of successful progress in PSP.
A new Concessions law was introduced in 2006. Even before this law has come
about, EBRD in 2005 had evaluated Kazakhstan as having a medium level of
compliance with international concessions standards and principles.
There is much to be done at the level of legal integration (compatibility) between concession law and the rest of the related legal framework with respect
to issues such as property rights, procurement laws, and laws governing foreign
investment.
Consistency and objectivity of judicial enforcement remains to be proved.
Regulatory structures existent but inexperienced. Not clear the degree of their
Parameter
7
8
9
independency from public interests.
Tendering procedures
Open tendering procedures exist
List of prioritised transport pro- There is a list of 9 projects on roads, 7 on rail and 1 on aviation)
jects
Past & ongoing PPP country
There are already PPP concessions implemented in the rail and the road sectors
experience in the transport sector
In the ERBD’s Legal Indicator Survey of 2006, Kazakhstan scores around 68% regarding the effectiveness of concession law in practice.
The case of Uzbekistan
The investment climate remains unpredictable in Uzbekistan, characterised by confusing laws and regulations,
which are unevenly and arbitrarily enforced. Registration and licensing are lengthy processes, whilst obtaining credit
for SMEs remains problematic. Land property rights have not yet been fully established, and privatisation and restructuring of the larger economic concerns are still pending.
The pre- assessment of the country’s current position and potential of PSP in the transport sector of Uzbekistan renders the following result:
1
2
3
4
5
6
7
8
9
Parameter
Political environment and stability
High level of corruption. First elections are expected on December 2007.
Political stability is to be proved.
Economic environment
High growth levels of the economy as a whole. (4.3 per cent growth 199703 and then accelerating to a growth rate of 7.7 per cent in 2004, 7.0 per
cent in 2005 and some 7.3 per cent in 2006).
Slow transition process towards an open market economy.
Relatively low transport flows to support private sector involvement.
Very negative investment climate, mainly due to bureaucracy, corruption, lack of government commitment and consistency (see the bad experience of investment project in gold mining), bad practices of the passed and
lack of a solid legal and regulatory base. Consistency and objectivity of
judicial enforcement is also a serious issue.
General policy framework for PSP The “Transport Sector Strategy 2006–2020” was just finalised in an ADB
financed study.
Furthermore, there is no clear government statement and policy on PSP in
transport.
Concessions specific legal frame- A recent law refers to concessions but there is no concession- specific lework
gal framework.
EBRD in 2005 had evaluated Uzbekistan as having a low level of compliance with international concessions standards and principles.
Legal integration
To be developed
Regulatory structures
Need to be developed
Tendering procedures
No experience
List of prioritised transport projects No priority list identified
Past & ongoing PPP country experi- No PPP concessions experience in the passed
ence in the transport sector
In the ERBD’s Legal Indicator Survey of 2006, Uzbekistan scores around 13% regarding the effectiveness of concession law in practice. There is much to be done on the general political and economic environment before any serious private investment interests could arise.
Regarding the other two countries (Tajikistan and Kyrgyz Republic), although not visited during the 1st mission, it
was found by alternative sources, that PSP in transport is facing almost the same serious problems as in Uzbekistan.
In the EBRD’s Legal Indicator Survey of 2006, Tajikistan and Kyrgyz Republic score 13% and 22% respectively,
regarding the effectiveness of concession law to work in practice.
11. Transport operations
Intermodality is in its infancy in the region.
Although there is some rail/road transport (using both modes), inter-modal penetration is low. To quote the example
of Uzbekistan: Two major forwarders (Shostrans; Uztemiryolkonteynor) are engaged in intermodal (rail/road) container transport with terminals and necessary handling equipment at major cities of the country and, as in the case of
Shostrans, own delivery trucks. Nevertheless, due to both lack of dedicated container trucks as well as specialised
rail wagon fleet, “the service quality for container traffic is virtually the same as that for general cargo”25.
Following a “logistics friendly survey” conducted by ADB in the CARs in 2004/5, Kazakhstan and the Kyrgyz Republic are the most logistics friendly countries among the CARs, while Tajikistan turned out to be the least logistics
friendly in terms of transit cost, speed and reliability.
12. Transport safety
It seems from the absence of explicit safety programmes, that the deterioration of the road safety situation has been
taken as a necessary toll of road development. Road safety concerns are increasing as international traffic is growing.
The statistical evidence
The IRU has collected some eye–catching statistical evidence, which demonstrates the urgency of the safety problem especially in the fast growing economy of Kazakhstan and in the mountainous countries of Kyrgyzstan and Tajikistan. As exemplarily illustrated in the graph below, Central Asian countries unfortunately are holding the negative accident record, measured in accidents per 1000 vehicles registered. Of course, a more in-depth accident analysis will have to be carried out in the next period, in order to better understand and address the internationally relevant dimension of the problem, especially with regard to heavy vehicle traffic.
In most countries of the region the extremely bad road accident situation correlates with poor accident reporting
and analysis.
Rail safety also deserves a specific emphasis, especially as rail is (and will be) used to carry dangerous goods. Air
safety and air navigation safety are equally worrying, as the switch from former USSR systems and equipment requires considerable investment. It must be borne in mind that efficiency-enhancing and cost-cutting measures always lead to risks.
Lack of targeted and harmonised enforcement policies
Despite existing control mechanisms, it shows from simple observation that the vehicle roadworthiness is often not
guaranteed and factors such as overloading not adequately sanctioned.
It will be necessary, that the mosaic of national controls in the CAR region be replaced (in the words of the IRU)
“… by enforcement where operators are dealt with according to where they are in relation to the law and not where
they are in relation to the border”.
25
ADB: Uzbekistan Transport Sector Strategy 2006-2020
Figure 2:
Number of road traffic accidents per thousand road motor vehicles, 2004
Annex 6
EBRD transition indicators table of 2006
Annex 6: EBRD transition indicators table of 2006
Graph 1: Transition indicators of Kazakhstan for 2006 (Source: EBRD Country fact sheet 2006)
Graph 2: Transition indicators of Uzbekistan for 2006 (Source: EBRD Country fact sheet 2006)
Annex 7
Background information on regional economic trends in Central Asia
Annex 7: Background information on regional economic trends in Central Asia
The prevailing lack of international transport facilitation is incompatible with the macro-economic
development trends and transport development requirements of the region.
Transport efficiency is especially required in order to cope with the fast growing international trade:
Viewing the various trade related data collected from official sources during the inception period, it shows
that CIS international trade altogether is growing faster than world trade – as can be seen from the
figure below – not at least due to the high shares of fuels and mining products. As far as individual country
trade figures were available (as for Kazakhstan, Kyrgyzstan), they confirm this trend.
The general trade dynamics of the Central Asia region are amplified by China’s “Go West” policy
announced in late 2000, which manifest itself in fast growing China – Central Asia trade relations.
For example, the trade (imports/exports) between China and the Kyrgyz Republic grew by impressive 180 %
during 2002-20061, from 142 000 to 400 000 tons.
Figure 1:
World merchandise trade by region, 2005 (Source WTO)
Another highly illustrative example is Kazakhstan which is the major regional trading partner presently for
the PRC:
The volume of export freight transportation from Kazakhstan into China has more than doubled between
2000 and 2006, rising from some 4 billion to over 9 billion tons overall (all modes). During the same period,
imports from China into Central Asia via Kazakhstan have increased by almost five times, from 262 thousand
to 1.5 billion tons.
The bulk of the PRC import/export trade (85% in 2006) is moving by rail via Dostuk border point, because of
the goods typically transported by rail. Nevertheless, according to information received by the Ministry of
Transport and Communications of Kazakhstan2, rail container traffic already amounts to 13% of total rail
traffic and is believed to grow further in future.
Altogether, a further increase in China trade can be expected because of infrastructure improvements.
1
2
The Chamber of Commerce of the United States, Land Transport Options Between Europe and Asia:
Commercial Feasibility Study, July 2006
Annex 7 / 1
Not only the 480 km Urumqi–Dostuk (Kazakhstan border) railway line is to be double tracked according to
available information. Moreover, Kazakhstan and China signed a statement on cooperation in railway
construction in July 2005, which foresees the construction of an east-west line running from Dostyk to Aktau
on the Caspian Sea.
Figure 2:
Volume of export freight transportation Kazakhstan-China for 2000 and 2006
motor transport /
автодорожный
транспорт ( ton/тонн)
9 000 000,0
8 000 000,0
7 000 000,0
railway
transport/железнодорож
ный транспорт
(ton/тонн)
6 000 000,0
5 000 000,0
4 000 000,0
other
3 000 000,0
other
2 000 000,0
railway transport/железнодорожный
транспорт (ton/тонн)
1 000 000,0
motor transport / автодорожный
0,0
2000 year /год
2006 year / год
* Source : TRACECA National Secretariat, Kazakhstan
* Источник: TРАСЕКА Национальный Секретариат, Казахстан
Figure 3:
Import freight volume transportation China-Kazakhstan for 2000 and 2006
motor transport /
автодорожный транспорт (
ton/тонн)
1 200 000,0
1 000 000,0
railway
transport/железнодорожный
800 000,0
600 000,0
400 000,0
other/ прочие
200 000,0
other/ прочие
railway transport/железнодорожный
0,0
motor transport / автодорожный
2000 year /год
2006 year / год
* Source : TRACECA National Secretariat, Kazakhstan
* Источник: TРАСЕКА Национальный Секретариат, Казахстан
Currently, the land link between Asia and Europe is not used for any large-scale commercial container trade.
Although it is rather difficult to get exact figures on container movements, it seems evident from available
sources that road transport accounts for a very small portion of the containerised Central Asia/Sino-European
trade.
Annex 7 / 2
Nevertheless, the observed increase in container traffic from and to China, confirmed by the globally
predicted increase in container traffic3, clearly points to the developing need for modern logistic networks for
modal interchange.
Most of the countries in the project area have the creation of logistic centre formation high on the political
agenda, although there are concerns that container throughput figures are insufficient to make proposed
investments financially viable.
The global economic balance is increasingly shifting towards China, which more and more emerges as a
“manufacturing giant” and dominant regional and international player. There is talk of a new Silk Road
connecting the PRC to the Middle East and India. This trend might redirect, sooner rather than later, interest
and investments from the historical Silk Road network that is supported by the TRACECA initiative.
3
www.news.onvista.de ; According to a recent study, 9.2 million container worldwide are required to cope
with the increase in container traffic until the year 2008 alone. Concredit Container Fond forecasts a doubling
of the world container market within the next ten years to come.
Annex 7 / 3
Annex 8
List of major meetings during inception phase
Annex 8: List of major meetings during inception phase
List of meetings in Astana from May 21-23, 2007
Name
Position
Met by
Toleutay Rakhimbekov
MoTC, Director of Department Dr. Franz Josef Goetz, Team Leader
of Transport Policy &
Olivier d’Auzon, Legal Expert
International Cooperation
Alexandra Subbotina, Project
Assistant
Radilbek Adimolda
MoTC, Deputy Chairman of
Civil Aviation Committee
Dr. Franz Josef Goetz, Team Leader
Assistant
Bolat Aldabergenov
MoTC, Deputy Head of Road
transport Department
Assistant
Selim Kuanyshuly
MoTC, Head of International
Road Transportations
Department
Assistant
Oljas Bilyaev
MoTC, Road Transport
Consultant
Assistant
P.Tolstokorov
MoTC, Deputy Chairman
Railway Transport Committee
Assistant
Mrs. Olga Fomenko
MoTC, Head of Transit and
Transport Policy and
International Co-operation
Department
Assistant
J. Corrigan
Senior Legal Adviser
Support for the Implementation
of the Partnership and cooperation Agreement between
the European Union and the
Republic of Kazakhstan
Annex 8 / 1
List of meetings in Astana from June 18-19, 2007
Name
Position
Met by
Mrs. Rysgul Kaugabaeva
MoTC, Deputy Director of
Transport Policy &
Department
Assistant
Yelizaveta Krupochkina,
Representative in Astana
Mrs. Olga Fomenko
MoTC, Head of Transit and
Department
Assistant
Mr. Nurlanbek Umirbayev
MoTC, Deputy Chairman,
Committee for Transport
Infrastructure Development
Assistant
Mr. Mamyrbek Zhyrymbayev MoTC, Head of Committee for Dr. Franz Josef Goetz, Team Leader
Transport Infrastructure
Development
Assistant
List of meetings in Dushanbe from June 26-29, 2007
Name
Position
Met by
Mr. Khudoyer Khudoyerov
MoTC of Tajikistan, Deputy Dr. Franz Josef Goetz, Team Leader
Minister of Transport and
Communications
Alexandra Subbotina, Project Assistant
Vadim Turdzeladze, Transport Policy
Expert
Solikh Muminov, Traceca National
Secretary
Mr. Solikh Muminov
MoTC of Tajikistan,
Traceca National Secretary
Expert
Mr. Akrat Ruzmatov
MoTC of Tajikistan, Head
of Transport Safety
Department
Expert
Mr. Aziz Mamonov
MoTC of Tajikistan, Head
of Transport Department
Annex 8 / 2
Name
Position
Met by
Expert
Mr. Makhmadali Shokirov
Association of International
Automobile Carriers of the
Republic of Tajikistan,
President
Expert
Secretary
Mr. Boymurod Eshonov
Vice-President
Expert
Secretary
Mr. A. Zakirov
automobile carrier, Degertaj
Company
Expert
Secretary
Mr. Frederik Coene
European Union Delegation, Dr. Franz Josef Goetz, Team Leader
representative office in
Tajikistan, Project Manager Vadim Turdzeladze, Transport Policy
Expert
Mr. Faridun Muhitdinov
Executive Body of the
Government, Shokhmansur Alexandra Subbotina, Project Assistant
district, Chairman
Mrs. Farida Ekruzada
MoTC of Tajikistan, Acting Dr. Franz Josef Goetz, Team Leader
Head of International
Relations Department
Expert
Secretary
Annex 8 / 3
List of meetings in Tashkent, Uzbekistan held within the period of July 4-9, 2007
Name
Position
Met by
Mr. Abdurashid Tagirov
Head of the Department on
External Affairs and Transit
Potential Development of
the Uzbek Association of
Transport and Transport
Communications
Dimitris Kostianis, Expert on Financial
and PPP issues
George Emmanoulopoulos, Expert on
Freight Transportations and Logistics
Network issues
Vadim Turdzeladze, Expert on Transport
Strategies Development
Marina Gulyamova, Project
Representative in Tashkent
Mr. Olimjon Buranov
Permanent Representative
of TRACECA IGC
in the Republic of
Uzbekistan,
National Secretary
and PPP issues
Network issues
Mr. Mirzoulugbek Ruziev
Senior Experts of the
National Coordinating UnitUzbekistan of the European
Union’s Tacis Programme
and PPP issues
Network issues
Mr. Hong Wei
Head of the Uzbekistan
Resident Mission of the
Asian Development Bank
and PPP issues
Network issues
Mr. Abbas Ofarinov
Associate Banker of
Uzbekistan Resident
Mission of the European
Bank for Reconstruction
and Development
and PPP issues
Network issues
Mr. Otabek Alimatov
Annex 8 / 4
Name
Position
Met by
Mr. Manfred Ziewers
Coordinator of Liaison
Office of the European
Commission in Uzbekistan
“Europa House”
and PPP issues
Network issues
Vadim Turdzeladze, Expert on
Mr. Kakhramon
Siddiknazarov
President of the Association Dr. Franz Josef Goetz, Team Leader
of International Road
Carries of Uzbekistan
and PPP issues
Network issues
Mr. Nicolay Kuznetzov
Head of the Analytical
Department of the
Association
Mr. Khakim Matchanov
Chairman of the Uzbek
International Forwarding
Association
Network issues
Mrs. Galina Magay
Head of the Department on
Development of Legal
Documents of the Uzbek
Agency for Automobile and
River Transport
and PPP issues
List of meetings in Astana from July 10, 2007
Name
Position
Met by
Mrs. Saltanat Rakhimbekova
MoTC Director of Transport
Policy & International
Cooperation Department
George Emmanoulopoulos,
Transportation Expert;
Dimitris Kostianis, Economic Expert;
Mrs. Rysgul Kaugabaeva
MoTC Deputy Director of
Transport Policy &
Department
Mr Muratzhan Zhangozin
Ministry of Finance of the
Republic of Kazakhstan,
Deputy Head of Customs
Control Division, Customs
Annex 8 / 5
Name
Position
Met by
Control Committee
Mrs. Olga Fomenko
MoTC Head of Transit and
Section
Mr. Nurlanbek Umirbayev
MoTC , Deputy Chairman,
Committee for Transport
Infrastructure Development
Mr Bolat Aldaberguenov
MoTC Deputy Head, Road
Transport Division
Mr Satzhan Ablaliev
MoTC Head of Division for
Normative and Legal
providing and Technical
policy, Committee for
Transport Infrastructure
Development
Mr Bulat Smagulov
MoTC Deputy Head of
Division for Road Transport
Control, Transport Control
Committee
Mr. Tulep Konkakov
MoTC Head of Division,
Railway Committee
Annex 8 / 6
Annex 9
Kick-off meeting of 3 August 2007
- PROGRAMME Friday, 3rd August 2007
Kick-off Meeting for the EU funded Project ‘Development of Co-ordinated National Transport Policies,
Republic of Kazakhstan, Kyrgyz Republic, Republic of Tajikistan, Republic of Uzbekistan, Republic of
Turkmenistan’
09.00 – 09.30
Registration
09.30
Welcome address by Mrs. Saltanat Rakhimbekova, Head of Department of Transport Policy
and International Cooperation under the Ministry of Transport and Communications of
Kazakhstan
Welcome address by Mrs. Anna Bramwell, Head of Technical
Cooperation Section for Kazakhstan, Delegation of the European
Commission to the Republic of Kazakhstan, the Kyrgyz Republic
and the Republic of Tajikistan
Welcome address by Mr. Rustan Jenalinov, General Secretary IGC TRACECA, Azerbaijan
10. 00
Dr. F.J. Goetz, Team Leader, GOPA/Trademco Consultants on “Challenges& opportunities of
regional transport policy coordination”
10. 20
Mr. Murat Bekmagambetov, TRACECA National Secretary for Kazakhstan, on” PPP in
Central Asia”
10. 40
Mr. Dimitris Kostianis, Financing and PPP Expert, GOPA/Trademco Consultants, on “PPP
enabling environment in CARs – a first view of Kazakhstan’s experience”
11. 00
Mr. Sayat Kardasinov, Research Institute for Transport and Communication, Kazakhstan,
Engineer-Constructor of Road Safety Department, on “Road Transport Safety”
11.15
Coffee Break
11.30
Mr. Vadim Turdzeladze, Transport Policy Expert, GOPA/Trademco Consultants, on
“Mainstreams for development of coordinated regional transport policies”
11. 45
Mr. Olimjon Buranov, TRACECA National Secretary of Uzbekistan, on “Role of
TRACECA projects for the Republic of Uzbekistan and Central Asian region as a whole”
12. 00
Mr. Olivier d’ Auzon, Transport Legal Expert, GOPA/Trademco Consultants, on ”Legal
transport facilitation framework in landlocked Central Asian countries.
12. 20
Mrs. Madina Ibrasheva, National Program Coordinator, OSCE, on ”Introduction into OSCE
work”
12. 30
Dr. F.J. Goetz, Team Leader, GOPA/Trademco Consultants, on “Strategic Conclusions”
12. 45
Discussion
13. 30
Lunch Invitation
The Meeting place: The kick-off meeting is held at the conference hall “Ulutau” of the Hotel “ASTANA”,
Satpaev & Baitursynov Streets, 480000, Almaty, Kazakhstan, www.astana-hotel.com tel. : +7 327 2507050, fax +7
327 2501060, 2501230
Contact address: GOPA/Trademco , Office Almaty 158, Panfilov Street, Room 40,Tel./Fax +7(327) 2671578, email: centralasiatransport@gmail.com
1
MEETING MINUTES
OF THE KICK-OFF MEETING FOR THE EU FUNDED PROJECT
“DEVELOPMENT OF CO-ORDINATED NATIONAL TRANSPORT POLICES,
REPUBLIC OF KAZAKHSTAN, KYRGYZ REPUBLIC, REPUBLIC OF TAJIKISTAN,
REPUBLIC OF UZBEKISTAN, REPUBLIC OF TURKMENISTAN”
Almaty
August 3, 2007
Participants:
as attached
Location
Conference Hall “Ulutau” of the Hotel “ASTANA”
Duration
09:00-14:00
List of the issues under discussion:
•
Presentation of the approach and organization of the project
•
Presentation of the initial findings followed by a feedback discussion
•
Decision to establish High Level Working Group (HLWG) and its composition (including the date
and the locations of the HLWG)
List of the documents provided:
•
Dissemination materials included the set of bi-lingual presentations of the Project Experts’ Team
Summary notes:
Mr Bernd Brunnengraeber – Project Director/Chairman of the meeting - opened the conference and
greeted all the participants of the event. Also a short introduction to the GOPA-TRADEMCO project
tasks was made. Then the forum was given to the various speakers of the meeting.
Mrs Saltanat Rakhimbekova - Head of the Department of Transport Policy and International
Cooperation under the Ministry of Transport and Communications of the Republic of Kazakhstan –
stressed the importance of the main strategic tasks of the transport policy of Kazakhstan that states for the
due operation of the existing transport and transit potential of the country, taking into account its
landlocked location. She briefly outlined the main guidelines of the Transport Strategy of the Republic of
Kazakhstan till 2015 adopted in 2006, the main points of which are focused on future-oriented
development of transport and communication complex of the republic. In line with the TRACECA MLA
strategic priorities it aims at the integration of the transport complex into the regional/global economic
system. She underlined that it is the harmonization of the relevant legislation that leads to improved
efficiency of cargo delivery and reduction of delivery period under the current circumstances and, hence,
plays a crucial role for establishing a conducive environment for sustainable promotion and improvement
of transport infrastructure.
Mrs Rakhimbekova informed the participants on possible signing of the draft Agreement of TRACECA
IGC on multimodal transportations within the framework of forthcoming Annual IGC Conference
planned to be held in November 2007 in Astana, which at the time being is in the process of its
assessment by the relevant authorities of Kazakhstan. In perspective, the document to be signed will
enhance the proper operation of TRACECA routes on the basis of a unified legislation and transport
system aimed at reducing border crossing procedures, and establishing a common delivery documents and
beneficial through rates.
Mrs Anna Bramwell - Head of Technical Cooperation Section for Kazakhstan, Delegation of the
European Commission to the Republic of Kazakhstan, the Kyrgyz Republic and the Republic of
Tajikistan - made a welcome speech announcing the official launch of the project at hand aimed at
1
developing of a coordinated transport policy for the region, and underlined the importance for enhanced
regional development of the following issues: (i) strategic partnership between EU and Central Asia, (ii)
role of TRACECA programme for improvement of transport connections between the countries, and (iii)
importance of bilateral and regional relations with the member-states. She recalled the various
achievements of the EU financial and technical assistance since early 1990’s. Mrs Bramwell finally
addressed the mass media representatives requesting proper consideration of TRACECA efforts and
achievements.
Mr Rustan Jenalinov – General Secretary of TRACECA IGC – greeted the participants of the meeting
on behalf of TRACECA IGC and thanked the hosting project team for the good organization of the
conference. He made a short presentation of the TRACECA Programme background, its viability and
internationally recognised status as the most dynamic developing transport and trade facilitating initiative,
which is accompanied by a constant growth of the cargo transportations along the TRACECA corridor.
Also he informed, that since the programme’s launch 14 years ago under the TRACECA umbrella 60
projects with the budget of Euro 121 million were implemented, and that the TRACECA programme
helped to attract IFIs’ financial support of TRACECA’s initiatives, which altogether invested Euro 1,3
billion in transport infrastructure development. The General Secretary informed further on the importance
of the Multilateral Agreement (MLA) as the only regulatory framework of regional relevance in place,
recognised as a regulative basis through ratification by the Parliaments of all member states. He also
referred to the Strategy of TRACECA IGC for development of the international transport corridor
Europe-Caucasus-Asia for the period till 2015 approved in Sophia (Bulgaria) in 2006, where clear
emphasis for future cooperation has been given to the issues of institutional strengthening, harmonization
of the legislations, institutional capacities development, public and private partnership promotion. The
issue of proper collaboration with the partner organizations as UNECE, UNESCAP, EBRD, ADB,
SPECA, CAREC, USAID was also emphasized.
Following the various welcome speeches summarised above, presentations were delivered by Team
Leader Dr. F.J. Goetz, Mr M. Bekmagambetov, Mr D. Kostianis, Mr S. Kardasinov, Mr V. Turdzeladze,
Mr O. d”Auzon, and Ms M. Ibrasheva (as to the various titles of the presentations pls see the agenda of
the meeting), presenting initial project findings and conclusions. The focal points of the various
presentations and following discussions were issues such as PPP enabling environment and state of affairs
in the countries of the region, logistic network development requirements and opportunities, legal
harmonization requirements, state of implementation of international conventions and agreements, and
transport safety.
Concerning the discussion of Steering Committee membership, Ms Rakhimbekova had the solid support
for the nomination as the Chairman of Steering Committee of the project.
During the discussion period, following conclusive interventions were made:
Mr Bekmagambetov: He recalled the challenging and at the same time very complicated nature of the
project, nevertheless requesting the drafting of specific and concrete recommendations, especially also
regarding the project’s contribution to the drafting of the Transport Code of the Republic of Kazakhstan.
Mr Kaplan: In essence, he raised a question of paradoxical nature: How can it be that the EU favours
trade and transit facilitation, while keeping up at the same time the restrictive EU visa regime as a main
hindrance for regional cargo carries. According to his information, the Schengen visa is being provided
for the period of only 10 days. What if the driver got some unforeseen delays? He concluded by
requesting adequate consideration of the mentioned problem in the framework of the project.
2
Annex 10
Proposals for High Level Group
Annex 10: Proposals for the High Level Group (HLG)26
1. Background and Characteristics
The Terms of Reference (TOR) of the present project on the Development of Co-ordinated National Transport
Policies for the Republic of Kazakhstan, Republic of Tajikistan, Kyrgyz Republic, Republic of Uzbekistan,
and Republic of Turkmenistan includes the following described as Task 14.
“As the project can just tackle short term ad hoc measures and initiate the medium and long term measures, the follow-up of the project needs to be organised within the countries in order to define responsibilities, means and ways
ensuring sustainability of the project results. Thus the project implementation requires a very comprehensive and
interactive approach with the following milestones to be envisaged:
(i)
(ii)
(iii)
(iv)
(v)
(vi)
a Kick-off meeting, presenting the approach of the Consultant to the project (held on 03.08.2007 in Almaty);
a (HLG) working group meeting adopting the findings of the review and clarification phase;
a (HLG) working group meeting adopting the coordinated national action plans;
a presentation of the results of the co-ordination process by the agreed work packages;
a presentation of the draft final report to the countries,
the priority is to develop a regional road transport market in Central Asia.”
In order to support the HLG, the TOR foresaw the set-up of Expert Working Groups (EWGs) dealing with specified
work packages at technical level and reporting to HLG.
The Inception Report (page) under Task 14 of the TOR reconfirms that “a most particular output shall be the establishment of the High Level Working Group (HLG).
“The establishment of the HLG under the project, which shall be made up of high-level representatives of the Ministries in charge of transport policy together with other major stakeholders in the field (such as international organisations, international NGOs, and the private sector) is certainly an appropriate project activity in this respect. For
meeting the “multi-agency criteria” as required for successful policy coordination, invitations for participation in
the work of the HLG have already been sent out during the project inception phase to all major stakeholders from the
public as well as private sector. A complete list of organisations/persons contacted is provided below.
On the HLG membership issue, Mr Rustan Jenalinov - Secretary General of the IGC TRACECA - has been consulted, and it became clear from the discussions held, that:
• it will be essential to involve the international groups of which these countries are a part, such as TRACECA,
Eurasian Economic Community, the Economic Cooperation Organisation (ECO) or the Shanghai Cooperation
Organisation, amongst others;
• the project should be seen as being equally based in all four of the Central Asia states in order to stimulate
“ownership” of the project with all beneficiaries.”
Recalling the project’s TOR, “the HLG should meet a minimum of two times during project implementation, and
should facilitate implementation of project tasks according to an agreed schedule and comment on project outputs.”
It is clear that the HLG should not be regarded as a short term measure for the life of this project but should be set
up in the framework of a permanent structure, that is the IGC TRACECA. It is therefore proposed that HLG
should take the form of an Extraordinary IGC Sub-Regional Session of TRACECA. This will enable the legal
harmonisation process to be continued after the end of this project as correctly foreseen in the project TOR.
The initial meeting of the HLG was originally foreseen for August 2007, but it became clear that this was impractical for a variety of reasons. It is now proposed to hold the first meeting in November 2007. At this meeting it is expected that the HLG will be formal established, and a road map agreed for future work. The issues to be addressed
by the EWGs will be considered and agreed upon and are expected to include:
26
It has been preferred to work with the abbreviation HLG rather than “HLWG” for High Level Working Group following the
confusion created among the participants of the Kick off meeting by using in parallel the two terms HLWG. and EWG.
•
•
•
•
•
Legal transport framework harmonisation with clear focus on regional/international road transport issues;
freight forwarding and logistics improvement;
public private partnership (PPP) promotion;
regional/sub-regional modal co-operation;
road safety improvements.
Organisations contacted by the consultant about participation in the HLG are:
•
•
•
•
•
•
•
•
•
•
•
Asian Development Bank (ADB)
Economic Co-operation Organisation (ECO)
Eurasian Economic Community (EurAsEC)
European Bank for Reconstruction and Development (EBRD)
Organisation for Security and Co-operation in Europe (OSCE)
Permanent Secretariat of the TRACECA Intergovernmental Commission (PS Traceca IGC)
Shanghai Co-operation Organisation (SCO)
United Nations Economic Commission for Europe (UNECE)
United Nations Economic and Social Commission for Asia and the Pacific (UNESCAP)
International Road Transport Union (IRU)
International Road Federation (IRF)”
It is very much hoped that the project succeeds in engaging above organisations into the work of the HLG and its
Expert Working Groups (EWGs). Since the project by TOR is concentrated on the roads sector, the project has refrained from getting into contact with stakeholders from the railways, maritime and aviation sectors such as IATA,
IMO, or OTIF and UIC.
2. First meeting of the High Level Group
2.1 Objective
As an overall objective, the HLG should be a forum of dialogue among the authorities responsible for transport in the five Cental Asia Republics. Created in the framework of the present transport policy coordination
project, it has the following objectives:
•
•
•
•
•
to share experience of overcoming problems that exist in the transport sector at a regional level;
to set up Expert Working Groups (EWGs) in areas that require further study, and to evaluate and reach conclusions on the findings of these EWGs;
to foster the harmonisation of national transport policies and respective legal frameworks in the region;
to coordinate the development of international transport infrastructure and services with a regional perspective,
contribution to the physical integration and social and economic cohesion of the central asia area;
to foster equitable and sustainable development
2.2 Organisation structure
The HLG will structure its work at three levels:
Level 1: First, its direction level is formed by the Transport and Communications Ministers/Deputy Ministers of the
beneficiary countries. Their role is that of agreeing on and deciding the strategic lines of work and approving action
plans. HLG meetings will allow for both informal discussions between the beneficiary countries in the form of mutual information exchange, and to signal implementation problems concerning political willingness and/or implementation capacity (financial and political constraints). By structuring information exchange, it can be expected that
decision making processes within the project are more transparent and superior outcomes can be achieved. In essence, the formation of the HLG constitutes an attempt to solve cooperatively apparent problems of international
transit and traffic, and to rationalise the decision-making process.
Level 2: Second, the executive level is structured around Expert Working Groups (EWGs) which are made up of
senior officials and specialists named by the individual countries, and supported in their work by the project team.
There is one EWG for each work package, with the purpose of analysing specific topics among countries and proposing concrete actions at the regional level.
At the working level for each beneficiary country the TRACECA National Secretary should be the first point of liaison, as these people are most likely the best informed concerning regional policy developments in transport. The
TRACECA National Secretary shall also act as the custodian of the “institutional memory” of the various initiatives.
He/she will be responsible for articulating the participation of the different ministries and government institutions
involved in regional/national transport; they are charged with the important task of representing the TRACECA interest in their country, evaluating technical assistance and following up the action plans agreed on at HLG level 1.
Level 3: A third level is integrated in the HLG and in the EWGs by representatives of IFIs and other interested international players in the field.
2.3 Coordination/ Procedures
The HLG fosters coordination of legal frameworking in transport and public expenditures in regionally relevant infrastructure at two stages:
• for the definition of actions of regional relevance to be considered; their ranking according to a series of criteria;
• for the execution of actions.
Coordination in the first stage is done by holding two meetings during the project implementation period among
group of government officials and experts mentioned in section 2.4.
The HLG has to agree on a methodology to evaluate and classify the projects identified for implementation, generally using Cost-Benefit or Multi-criteria Analysis. Coordination of the implementation of activities requires the introduction of common information-sharing and monitoring mechanisms.
2.4 Attendance
The following participants are expected to attend the HLG meetings:
• High-level representatives of the Ministries in charge of transport policy (it is proposed that the representatives
should be at the level of Deputy Minister);
• TRACECA National Secretaries;
• International organisations and NGOs - those expected to participate include those listed above in section 1, and
in addition, the following are to be invited to participate:
o
Trans-Siberian Express Cargo Service, Kazakhstan
2.5 Place
It is proposed that the meeting venue should rotate through the beneficiary countries (in alphabetical order). The first
meeting is therefore proposed to take place in Almaty, Kazakhstan to coincide with the IGC TRACECA annual
meeting on 24 November 2007.
2.6 Proposed agenda
Opening remarks
Presentation of the proposals for the formation of the HLG and EWGs
Presentation of on-going work of the project
Exchange of views with participants
Proposed formation of Expert Working Groups on
• Non-physical barriers at borders
• Pricing permits and road user charges
• Freight forwarding
• Assistance to hauliers
• Management and financing of road maintenance/rehabilitation
• Regional/sub-regional rail cooperation
• Road safety
Proposed timetable of activities
2.7 Establishment of Expert Working Groups
It is foreseen that Expert Working Groups (EWGs) will be established as necessary in order that national experts
from the countries involved, together with other experts may consider certain aspects of transport policy in greater
depth. These EWGs will organise their own schedule of meetings and rules of procedure within time scales established by the HLG. The EWGs would be expected to deliver their first report three months after the first meeting.
30 September 2007
Annex 11
Press release:
European Union encourages better coordination
of transport policies in Central Asia
EUROPEAN UNION
DELEGATION OF THE EUROPEAN COMMISSION TO THE REPUBLIC OF KAZAKHSTAN,
KYRGYZ REPUBLIC AND THE REPUBLIC OF TAJIKISTAN
PRESS RELEASE
European Union encourages better coordination of transport
policies in Central Asia
ASTANA, 1 August 2007 - A new project launched by the European Union to bring transport
policies of the five Central Asian republics together and reduce non-physical and administrative
transport barriers in the region is starting its operations.
Though at different stages of transition, the countries of Central Asia have a great deal in common.
This provides an opportunity for coordinating their national transport policies. However, different
level of transport services, trade and transit barriers, administrative border-crossing problems, toll
fees and non-parity of transport operations pose a great challenge.
The EU project will help to institute a regional dialogue and develop framework for closer policy
coordination, promoting national laws in line with the international transport conventions and the
legislation of the European Union. To achieve these objectives, a High Level Group of transport
ministers and senior officials will be established and assisted by a number of expert working
groups, including on legal harmonization, road safety, transport finance, freight forwarding,
advance of logistics and regional/sub-regional cooperation.
In the longer run, it will stimulate the regional trade and improve overall investment climate in
Central Asia.
Journalists are invited to the kick-off project meeting at 09:00 on 3 August 2007, to the
Astana International Hotel at the address: 113 Baitursynov Str, Almaty.
The project is implemented under TRACECA Basic Multilateral Agreement currently ratified by
12 nations. For more information on TRACECA you may visit the following website:
www.traceca-org.org
With further inquiries, you may also contact Ms Madina Bakieva, EC Delegation Press Officer at
tel: +7 (3172) 971040 or e-mail: madina.bakieva@ec.europa.eu
Press and Information Section
Delegation of the European Commission
The project is funded by the European Union
62, Kosmonavtov str., Chubary district
010000 Astana, Republic of Kazakhstan
Tel: +7 (3172) 971040, 971049
Fax: +7 (3172) 979563
Web: http://www.delkaz.ec.europa.eu
Annex 9: Kick-off meeting of 3 August 2007
Press release
04.08.2007 / 14:18 Новый проект расширит возможности коридора «Европа-Кавказ-Азия» –
МТК РК
АЛМАТЫ. 4 августа. КАЗИНФОРМ /Елена Ильинская/ – Новый проект по созданию национальных
транспортных стратегий стран Центральной Азии будет способствовать сближению транспортных
интересов между регионами и послужит созданию общей современной региональной
транспортной инфраструктуры с низкими затратами на грузоперевозки. Об этом вчера в Алматы
на презентации нового проекта GORA\Trademco Consultants сказала начальник департамента
транспортной политики и международного сотрудничества Министерства транспорта и
коммуникаций РК Салтанат Рахимбекова, сообщает корреспондент Казинформа.
Сегодня Казахстан движется по пути ускоренного экономического развития. Реализовать огромные
потенциальные транспортные возможности страны, не имеющей выхода к морю, - одна из
важнейших и основных задач, которая стоит перед транспортной отраслью Казахстана. В 2006
году была разработана и начата реализация транспортной стратегии РК до 2015 года, где
отражены основные направления развития транспорта и коммуникационного комплекса
республики, напомнила представитель Минтранскома РК.
Один из приоритетов развития международного транспортного коридора предполагает интеграцию
национального транспортного комплекса в международную транспортную систему. В современных
условиях организация доставки грузов в короткие сроки и в полной сохранности возможна только
путем создания полноценной законодательной базы, способной обеспечить правовое поле для
дальнейшего расширения и усовершенствования транспортной инфраструктуры, отметила
С.Рахимбекова.
В настоящее время Казахстан осуществляет политику унификации и кодификации
законодательства. МТК разработан и внесен в Мажилис Парламента страны проект Транспортного
кодекса РК, принятие которого позволит устранить имеющиеся противоречия правовых норм
действующих законодательных актов, урегулировать еще нерегламентированные отношения в
области прямых и смешанных перевозок грузов, а также привести имеющееся транспортное
законодательство в соответствие с международными нормами.
В рамках данного проекта разработан проект соглашения по трафику и развитию
мультимодальных перевозок, который сейчас проходит процедуру согласования в
государственных органах в целях обсуждения и возможного подписания в ходе VI ежегодного
заседания межправительственной комиссии ТРАСЕКА в третьей декаде ноября в Астане.
Подписание данного соглашения даст возможность использования международного трафика в
единой правовой и транспортной системе.
Самое главное - задача, поставленная проектом GORA\Trademco Consultants, будет
способствовать созданию современной региональной транспортной инфраструктуры, новых
современных транспортно-логистических центров и дальнейшему развитию мультимодальных
перевозок в рамках коридора Европа-Кавказ-Азия, подчеркнула С. Рахимбекова.
Annex 12
Intervention logic
Objectively verifiable indicators of achievement
Sources and means of verification
Assumptions
OVERALL OBJECTIVES
• Support the transition process to a market economy.
• Decreased State-owned/managed transport operations, and
monopolies
• Strengthened international trade and improved movement of goods
and persons, incl. cross border.
• Increased privatization and PPP initiatives
• Increased regional and international exchange,
economically and politically
• National /international trade and transport statistics
• Annual report IFIs (ADB transition report)
High willingness of the beneficiary countries to cooperate
PROJECT PURPOSE
• Assessment of national transport policies and directions for related
action plans
• Development of short, medium and long term policy guidelines
• Clear legal harmonisation principles, taking into account
TRACECA MLA and strategy
• Foster development of regional road transport market
•
•
•
•
• National statistics
• Transport/legal surveys
• Authorities support project activities by adequate provision
of information/data and counterparts
• Firm will & commitment of beneficiaries to sustain
coordination of transport policies in economically efficient
manner
• Alleviation of political/security problems between
beneficiaries affecting transport
• Full cooperation and reform willingness from legislative
bodies
• Regional-oriented transport policy approach applied in
beneficiary countries
• Application of international & EU conventions/agreements
• Legal amendments and law proposals
• Application of int. good practice
•
•
•
•
National laws, regulations
Published transport policy documents.
Protocols of international conventions & agreements.
Transport surveys
• Speedy, positive beneficiary feedback and decision making
on recommendations
• Legal and economic concepts understood and accepted.
• Willingness to consider demand-led, rather than supply-led
solutions
• Appreciation of sacrifice of small short term national
benefits for larger medium term regional benefits
• Legal frameworking guidelines agreed/approved
• Conflicts between national and regional transport
policies/legislation overcome
•
•
•
•
•
•
• Field research, expert interview
• Project reports and documents produced
• Project progress charts – actual vs. planned performance
• Firm will & commitment of beneficiaries to sustain
coordination of transport policies in economically efficient
manner
• Existing data, legislation, relevant reports, documents etc.
made available in timely manner
• Full cooperation and availability of local administration
staff, transport operators, and other project initiatives inc.
positive participation at seminars/workshops
• Translation problems solved
Legal amendments and draft laws
Lower transport costs/tariffs
Transport company creation and merger
Transport industry growth (job creation and foreign
exchange earnings
RESULTS
• Coordination principles for national transport policies coordinated
at regional level
• Short, medium and long term action plans
• Clear legislative frameworking principles and proposals in
accordance with international standards
• Recommendations for a harmonised legislation to establish a
regional market in the road transport sector in Central Asia
ACTIVITIES
• In-depth review of present situation
• Review of membership in international/regional
conventions/agreements
• Assessment of practical handling and application of the transport
legislation
• Assessment of management systems, qualifications and personnel
pre-requisites
• Benchmarking with regard to TRACECA, EU, international
practice and standards
• Development of short, medium and long term action plans in each
country to coordinate transport policies
• SWOT Analysis
• Collection of complete legislative package and creation data base
• Regional coordination/implementation of action plans
• Development of legislative and policy guiding principles and
measures to enhance regional road transport market
• Organisation of study tour
• Preliminary qualitative scanning of freight centres /needs
assessment
All reports/working papers submitted & agreed on time
HLG meetings, Seminars/workshops held
Training carried out
Web-site developed/up-dated
Study tour organized
Needs assessment logistics centres completed and
submitted
• Catalogue of good practice for LC formation submitted

Development of coordinated national transport polices

Transcription

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