Land Transport Safety and SecurityEuropeAid/126786/C/SER/Multi This Project is funded by the European UnionThe European Union’s TRACECA pr ogramme for Armenia, Azerbaij an, Georgia, Kazakhst an, Kyrgyzstan, Moldova, Tajikistan, Turkmenistan, Ukraine, UzbekistanEUROPEAID/126786/C/SV/MULTI Land Transport Safety and Security for Armenia, Azerbaijan, Georgia, Kazakhstan, Kyrgyzstan, Moldova, Tajikistan, Ukraine, UzbekistanInception ReportJune 2009
Overall project objectives: To improve the transport safety and security environments inthe EC Neighbourhood and Central Asian countries in line withEuropean standards in the field of land transport
Specific project objectives:
1. To strengthen the institutional and human resource capacities of the nationalauthorities charged with regulating the transport safety and securityenvironments
2. To support the elaboration and enforcement of a legal and regulatory frameworkfor transport safety and security harmonised with international and Europeanstandards and best practises
3. To raise awareness of land transport safety and security regulations andstandards.
Planned outputs
1. Legal, institutional and organizational assessment of the situation in land transport safetyand security in the beneficiary countries and definition of a related regional Action Plan incoordination with specialized EU agencies
2. Support to rule-making and to the establishment of legal standards for safety practice(including for freight services and the transport of dangerous goods), institutional capacitybuilding and awareness raising activities in line with requirements of European standards;support to the creation of working links with related European agencies
3. Technical assistance to the national security authorities and main security operators in thesector of land transport in order to establish Road and Rail Transport Security Guidelinesand customs-related guidelines for drivers and operators carrying or handling dangerousgoods
4. Provision of technical expertise and on-the-job training for the development of inspection,training programmes and certification structures to ensure implementation of the safety andsecurity legislation
5. Implementation of a safety, security and environment awareness programme
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2 Project relevancy
2.1 General project relevancy
2.1.1 The TRACECA countries have benefited significantly in the past decade from thesignature of the TRACECA Multilateral Agreement and their participation in the TRACECAprocess and the BAKU initiative. Substantial support has been provided by the EC to assist theauthorities to improve the design, management and maintenance of the physical infrastructure,strengthen institutional and human resource capacities and harmonise legislation, regulationsand standards not only at the national level but also at the intra- and inter-regional levels.
2.1.2 However, to date road and land transport safety and security issues have only beenaddressed obliquely: indirectly regulations related to axle weights, improved vehicle certification,
better road design all contribute to improved safety and security. This project, however, isdesigned to mainstream safety and security questions into all aspects of the work of theMinistries of Transport, Road Administrations and related accreditation, certification andmetrological bodies.
2.1.3 The national authorities in the TRACECA countries recognise that if they are to take fulladvantage of the investments that have been made (and are being made) in the transportationinfrastructure, increase intra-and inter-regional trade and gain greater access to global markets,it will be imperative that their safety and security measures are harmonised with the UN-ECE Agreements (AETR & ADR) and with EC Directives and Regulations. The existence of differential safety and security legislation, regulations and standards within the TRACECAcountries and between the TRACECA countries and the EU and China, for example, create anadministrative barrier to trade. In the present global economic crisis, such administrative barriers
can constitute the difference between profitability, survival or bankruptcy for road haulagecompanies. Tackling these issues at the national level will not be sufficient: there needs to be aconcerted effort to harmonise legislation, standards and regulations at the regional level.
2.1.4 Furthermore, the consequences of failing to tackle road and land transport safety andsecurity issues can have a seriously damaging impact upon the national and regional economy.Transport economists in Europe have calculated that the losses accruing from accidents andincidents are equivalent to 2% of GDP. The calculation is based upon such factors asinfrastructure and environmental damage; health care costs; lost labour time; reduced valueadded; insurance claims etc. This is an enormous burden for developing economies to bear,particularly at a time when global GDP is projected to shrink by 4 – 5% during 2009 and bymarginally less in 2010.
2.1.5 The accident and incident rates in the TRACECA countries are not higher than in the EU,when the statistical data is adjusted to reflect population levels. However, the date is somewhatdeceptive since it does not take into account traffic flows: there are fewer vehicles on the roadand the volume / nature of the traffic differs. As traffic flows increase, there is likely to be a risein the number of accidents and incidents. This fact is born out by a recent study published bythe World Health Organisation (June 2009). Approximately 1.3 million people die each year onthe world's roads, and between 20 and 50 million sustain non-fatal injuries. The WHO reportassesses road safety in 178 countries, using data drawn from a standardized survey. Theresults show that road traffic injuries remain an important public health problem, particularly for low-income and middle-income countries. The results suggest that in many countries roadsafety laws need to be made more comprehensive, that greater attention needs to be paid toroad maintenance and road design, while enforcement should be strengthened.
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2.1.6 During the last decade the volume of road transport has been growing very fast in the
TRACECA Member States. While on the one hand the growth of trade with Turkey is a major factor contributing to this, on the other hand the opening of the Chinese road transport marketand the consequent transit traffic across Central Asia to the EU/China is contributing evenstronger growth in the volume of vehicles on the roads. The table below shows the situation for Kyrgyzstan, where the grey column stands for the Chinese road transport vehicles.
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Source: Ministry of Transport and Communications of the Republic of Kyrgyzstan
2.1.7 This project is designed to address many of these issues: first, the project will continue thegood work started under previous EC and donor funded projects to support international tradeand facilitate the safe movement of passengers and goods along the TRACECA corridor;second, it will contribute indirectly to economic growth and poverty reduction in the beneficiarystates by reducing the cost burden of accidents and incidents upon the national budget andupon individual household budgets; third, it will raise awareness of land transport safety andsecurity regulations and standards and will help reduce the numbers of fatalities and injuriesresulting from land traffic accidents and incidents; fourth, it will strengthen the institutional andhuman resource capacities of the national authorities to develop and enforce safety andsecurity regulations in line with EU and international standards; finally and perhaps mostimportantly, the project will further reinforce intra-regional co-operation between theGovernments, Transport Ministries, Road Administrations, the private sector and Civil SocietyOrganisations, and the resultant networking will contribute to the establishment and
dissemination of best practices. As we noted above, initiatives to tackle road and land transportsafety and security are most effective when they are implemented at regional level as well asnational level.
2.1.8 The project remains highly relevant – indeed one might say that the current globalrecession simply highlights the need for a project designed to strip away yet another layer of administrative barriers to trade.
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2.2 Project-relevant legal framework for harmonisation of land transport safetyissues
2.2.1 The comments below are designed to provide a brief introduction to some of the centrallegislative and regulatory themes to be covered by the project. The following points need to beemphasised: (a) the legislative and regulatory framework is extensive – this summary provides just a snap-shot of the central issues; (b) during the Inception Phase we have concentratedupon data collection – a detailed comparative analysis of the current legislative and regulatorybase in the beneficiary countries constitutes the focal point of the next phase of the project; (c) itis fair to say that currently there is limited harmonisation of legislation and regulations atregional level and that, since many states are not signatories of the AETR or ADR Agreements,there are substantial steps to be taken before the countries within the region are fully compliantwith international standards.
AETR Agreement
2.2.2 The European Agreement concerning the work of Crews of Vehicles engaged inInternational Road Transport (AETR), of 1
stJuly 1970 is commonly referred to as the AETR
Agreement. It aims at improving road safety and regulating drivers’ hours, rules for working andrest times. Today, 42 Contracting Parties have signed and ratified the AETR Agreement.
2.2.3 The negotiation to incorporate EU Legislation on the digital tachograph into the AETRagreement started in 2000. The introduction of the digital tachograph is designed to be a major stimulus to road safety, by ensuring that professional drivers observe the regulations coveringdriving and rest times. However, the implementation of European Union legislation is extremely
complex for all actors: Member States and their national authorities responsible for card issuing,enforcement, policy implementation, and also related stakeholders from industry such astachograph, card and vehicle manufacturers, etc. need to prepare well in advance of theimplementation date.
2.2.4 The UNECE Inland Transport Committee adopted the AETR Amendments in 2004.However, the ratification process was delayed by a Communication from the Netherlandsstating that it intended to accept the AETR Amendments once its internal legal system had beenadapted. On 16
thMarch 2006, the Netherlands notified the UN Secretary General that it
accepted the Amendments to the AETR Agreement. According to the UN procedure, these Amendments entered into force three months after the date of acceptance, namely on the 16
th
June 2006, which also marked the starting date of the 4-year transition period before themandatory introduction of the digital tachograph into AETR contracting parties, namely
on 16th
June 2010.
2.2.5 At present the following beneficiary TRACECA Countries are Party State to the AETR Agreement and have to adapt their legislation and institutional arrangements to be ready inJune 2010: Armenia, Azerbaijan, Kazakhstan, Moldova, Ukraine and Uzbekistan. For Georgia,Kyrgyzstan and Tajikistan it would be advisable to become a Party State to the AETR Agreement in order to upgrade their level of road transport quality.
2.2.6 As from the 16th
June 2010, the digital tachograph will become mandatory for newvehicles put into service for the first time in non-EU AETR Contracting Party States. Suchintroduction requires considerable efforts from the non-EU AETR Contracting Parties to meetthe deadlines. An assessment in terms of timing is supplied, although timing depends a lot onthe administrative organisation of each State. As an example based on EU experience, in
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Lithuania, the same organisation is competent to issue cards (and therefore to issue andmaintain a security policy), to approve workshops and to enforce the rules on drivers’hours and
the proper use of tachographs, whilst in Germany these responsibilities are distributed betweendifferent organisations. As a result, Lithuania has been much quicker to implement the digitaltachograph system than Germany. But having started sooner, Germany was up and runningmore than one year before Lithuania.
2.2.7 It has to be emphasised that:
• despite the fact that the digital tachograph system is mandatory for domestic andinternational road transport at EU level,
• despite the fact that it is known in its very details since 2002,
• and despite the very intensive support supplied to national administrations by theEuropean Commission,
it has been and will be difficult for several EU Member States to complete their implementationprocess within the required timeframe. It is highly probable, that without support, the non-EU AETR Contracting Parties will find it extremely difficult to be ready by the 16
thJune 2010.
2.2.8 The implementation of the digital tachograph is a very complex operation. It requires:
• Approving a security policy at national level
• Issuing tachograph smart cards
• Adopting national laws on data management and data protection
• Adopting national laws on enforcement (roadside and company checks)
• Training and equipping national control officers
• Approving workshops for installation, activation, calibration, inspection, downloading,repair and replacement of the digital tachograph
2.2.9 Regarding workshop certification for instance, it was stressed that the AETR countries notmembers of the European Union would have to draw up an entire set of rules in their legislationcovering all aspects (in particular, equipment, staff training and skills). Such regulations shouldalso include a disciplinary procedure, along with regular supervision of the workshops. The AETR countries were invited to follow the lead of the countries of the European Union in thatfield.
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• It should be equipped with lighting to allow during night time security and mobility;
• It should be designed in order to ensure sufficient water drainage
• The parking area should offer a prescribed minimum number of slots for certaintypes of transport (dangerous goods, perishables, long-term rest facilitiesconnected to long distance transport);
• The parking area should be designed in order to allow the ordinary truckmaintenance, e.g. equipment for washing vehicles, washing loading units, makingsmall repairs, tyre changes, etc;
• The parking areas must contain a service area in which the following services arerequired: restaurant, mini-hotel, toilettes, shower, laundry, fax, mailing service,phone boxes. Additional, non-required, provisions are the following: mini market,eco-diesel fuel distribution and emergency assistance.
2.2.14 EU Research Projects, like LABEL, are investigating concepts and criteria for safe and
secure parking areas, and demonstrate in the chart below a clear connection between drivingtimes and rest periods on the one side and availability of secure and safe parking areas on theother hand.
2.2.15 The European Economic and Social Committee have give their opinion on the EuropeanRoad Safety Policy and Professional Drivers – Safe and secured parking places , which isannexed to this Inception Report (Annex 5).
2.2.16 The issues driving times and rest periods, digital tachograph and safe and secureparking are directly related with each other and have road safety as their main objective.Therefore the project considers it vital to have an integrated approach towards these issues.
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Dangerous Goods (ADR Agreement)
2.2.17 The European Agreement concerning the International Carriage of Dangerous Goods byRoad (ADR) was concluded at Geneva on the 30
thSeptember 1957 under the auspices of the
United Nations Economic Commission for Europe, and it entered into force on the 29th
January1968. The Agreement itself was amended by the Protocol amending Article 14 (3) signed inNew York on the 21
stAugust 1975, which entered into force on the 19
thApril 1985.
2.2.18 The Agreement itself is short and simple. The key Article is the second one, which statesthat apart from some excessively dangerous goods, dangerous goods may be carriedinternationally in road vehicles subject to compliance with:
• the conditions laid down in Annex A for the goods in question, in particular as regards their packaging and labelling; and
• the conditions laid down in Annex B, in particular as regards the construction, equipmentand operation of the vehicle carrying the goods in question.
2.2.19 Annexes A and B have been regularly amended and updated since the entry into force of ADR. The last amendments entered into force on the 1
stJanuary 2009, and consequently, a
AETR Agreement(UN/ECE)
(EC Regulation561/2006)
Regulate drivingtimes and rest
periods in order toimprove road safety
Stipulate use of digital tachographas proof of driving
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revised consolidated version was published as document ECE/TRANS/202, Vol. I and II ("ADR2009").
2.2.20 Most dangerous goods in the TRACECA region are traditionally transported by rail (e.g.crude oil). Due to the growth of road transport in Central Asia, one may however expect agrowth in additional transport of dangerous goods by road and therefore compliance with ADRbecomes a sensible, indeed, necessary option.
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3 Project Planning
3.0 Act ivi ties undertaken during Inception Phase
3.0.1 The Contract between the Commission Services and the Consortium led by Safege wassigned on the 28
thNovember 2008. The start-up of the project was delayed for several weeks,
while decisions were taken within the Commission Services as to whether or not todeconcentrate the project to the EC Delegation in Tbilisi. A kick-off meeting was held inBrussels on the 5
thMarch 2009, between the Project Manager (EC), colleagues from EuropeAid
Cooperation Office and DG-TREN, the Project Director and the Team Leader, to discuss theprincipal foci of the project. It was agreed that the main focus of the project should be upon road
transport safety. The possibility that at some point during the implementation of the projectissues related to rail transport safety might be addressed was not excluded. However, theimportance of tackling road transport safety issues, particularly in the form of legalapproximation within the TRACECA region and harmonised with EU Directives and bestpractise, was emphasised. In addition, it was noted that the project should also tackle roadsafety issues, where possible and where resources permitted.
3.0.2 The Team Leader mobilised to the region at the beginning of March 2009. The Base of Operations has been defined as Tbilisi, Georgia, as per the Terms of Reference. The TbilisiOffice also serves as the regional office for the Caucuses (Georgia, Azerbaijan and Armenia). Additionally a regional office was established in Chisinau, Moldova for the Western NIS (Ukraineand Moldova). The choice of Chisinau was welcomed by both the Traceca National Coordinator (Moldova) and the EC Delegations in Kyiv and Chisinau and formally endorsed through an
Administrative Order by the EC Project Manager. A second regional office was set up in Almaty,Kazakhstan to service those Central Asian Republics participating in the project (Kazakhstan,Kyrgyzstan, Uzbekistan and Tajikistan).
3.0.3 Three long-term junior regional coordinators were appointed in March 2009 and arelocated in each of the regional offices. Three office premises have been leased, support staff have been recruited and all the necessary equipment/furniture has been procured. A Companyhas been identified that will build, service and maintain a project website, which will also serveas the project e-mail portal. A request for an Administrative Order approving the sub-contract for internet services has been submitted to the EC Project Manager. All offices were fullyoperational by the end of March 2009. The addresses and contact numbers are set out in Annex 6.
3.0.4 The Project Director and the Team Leader drafted a proposal for the use of the IncidentalExpenditure budget line. This proposal was accepted by the EC Project Manager and themethodology for use of the IE budget line was agreed.
3.0.5 The main tasks performed during the Inception Phase were:
(a) A review of the Terms of Reference (objectives, results, risks and assumptions) in lightof the situation on the ground. The conclusions of this analysis are set out in Section2.2.2 below;
(b) A preliminary review of the structures responsible for land transport and road safety inthe beneficiary countries and familiarisation with the current institutional and legalframeworks. This data will be developed further during the Implementation Phase;
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(c) Meetings with the various beneficiaries, TRACECA National Secretaries, mainstakeholders in the Transport Sector and other involved state organisations to discuss
the current situation in the Transport Sector, existing ideas and plans and identify theessential points. A complete list of persons/institutions met is attached as Annex 4;
(d) Visibility Actions – the Project Director, Team Leader and KE 2 met with the responsiblepersons in the EC Delegations, IFIs, TRACECA National Secretariats, Ministries of Transport, Civil Society Organisations, to brief them on the objectives of the project andthe planned work programme and modalities;
(e) Detailed planning discussions – the Team Leader and KE2 met the principalbeneficiaries and stakeholders to discuss in detail their principal priorities, needs andinterests in order that these might be incorporated into the detail work programming;
(f) Coordination activities – the Team Leader met with the TRACECA PermanentSecretariat in Baku and the Team Leader and KE 2 also with the Team Leaders / Key
Experts of parallel EC funded-TRACECA projects, notably Strengthening of TransportTraining Capacity in NIS countries, International Logistics Centres for Western NIS andthe Caucuses, Development of equipment certification centres for the transportation of perishable goods in Central Asia and International Logistics Centres for Central Asia and Central Asia National Transport Policies
(g) Translation and dissemination activities – the project team has translated from Englishto Russian a significant number of EC Laws and Regulations related to Land TransportSafety and Security. In addition, the relevant Policies, Laws and Regulations from anumber of beneficiary countries have been translated from the local language intoEnglish. This work is continuing and will form the basis for the implementation of activities planned under Component 1.
3.0.6 The following missions to beneficiary countries have been executed:
• Rudolf Kamphausen (Team Leader based in Georgia) in March to Ukraine andMoldova, in April to Armenia and Azerbaijan
• Menno Langeveld (Legal expert) in April to Kazakhstan and Kyrgyzstan, May toTajikistan
• Ian Grant (Senior Project Director) in March to Moldova and Georgia, in April toKazakhstan
It has not been possible to visit all of the beneficiary countries during the Inception Phase.However, during his Mission to Kazakhstan, the Project Director was able to meet, brief andobtain feedback from the TRACECA National Secretaries from Uzbekistan and Tajikistan, whowere attending an Opening Conference for a parallel TRACECA project ( International LogisticsCentres for Central Asia), being implemented by this Contractor.
3.0.7 The following table demonstrates the inputs utilised during the Inception Phase (until endof May 2009)
Post Available mandays
Man days uti lised % of available mandays used during IP
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Major conclusions f rom the missions and meetings
3.0.8 Each of the beneficiaries expressed their interest in the proposed project activities.International road transport is still growing fast in the Beneficiary Countries, presenting theresponsible authorities with huge new challenges to be addressed, notably with respect to thegrowing volume of transit traffic. The beneficiaries acknowledge that there is a need toharmonise legislation, standards, certification and enforcement procedures in order (a) tofacilitate continued growth in the land transportation of goods; (b) to reduce administrative andtechnical barriers to trade; and (c) to ensure the safe carriage of goods and safety to roadusers. The emphasis upon legal and regulatory harmonisation was therefore welcomed, aswere the proposed training initiatives.
3.0.9 The issue of road safety (as opposed to transport safety) was also raised by a number of beneficiaries and by project managers in the EC Delegations. The link between road andtransport safety was emphasised: the safe carriage of goods also required that certain issues(drink-driving, speeding, use of seat belts etc), which more specifically linked to road safety, betackled.
Digital Tachograph
3.0.10 This issue was at the top of the agenda for almost all stakeholders. As from the 16th
June2010, the digital tachograph will, for the first time, become mandatory for new vehicles put intoservice in the non-EU AETR Contracting Parties. Complying with this requirement willnecessitate considerable efforts from non-EU AETR Contracting Parties. Technical Assistancewas requested particularly in the form of training of operators, enforcement officials and drivers
on how to deal with the digital tachograph, while a Study Tour to EU Member States waswelcomed in order to understand the practical requirements of implementing the digitaltachograph.
Transportation of Dangerous Goods
3.0.11 Only a few Beneficiary Countries have signed and ratified the ADR Agreement – Azerbaijan, Kazakhstan, Moldova and Ukraine - regulating road transportation of dangerousgoods. However, most of the beneficiary states who have not as yet signed the Agreementrecognised the importance of doing so quickly. Once again assistance in the form of advice andtraining was welcomed.
Safe and Secure Parking Spaces
3.0.12 The concept of dedicated, safe and secure parking spaces for trucks was welcomed byseveral partners, especially in Kyrgyzstan and Kazakhstan, where many new roads have beenconstructed or are in the process of construction, neglecting to include parking and rest areasfor trucks. For the Ministry of Transport and Communications in Kyrgyzstan this issue was infact the most important one: Kyrgyzstan faces more and more trucks on the road as a result of the opening of the Chinese road market and improvement of its road infrastructure.
3.0.13 The Ministry of Transport in Kyrgyzstan suggested that a road safety impact assessmentstudy be carried out in order to identify areas for safe and secure parking for trucks, is aninteresting one. It is proposed that this should be done as a pilot in 2010 with potential follow upin other countries. The International Road Transport Union (IRU) and the European TransportWorkers' Federation (ETF) have elaborated common criteria which are well formulated and
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practicable and which must be taken into account when such rest facilities are constructed.These criteria, and new criteria emerging from EU research projects, can be used to analyse
the present situation in the Beneficiary Countries.
Infrastructure
3.0.14 Furthermore, the issue of preparing road safety audits was frequently raised. Poor roaddesign and maintenance are major contributors to accidents and incidents. Road safety auditingis as yet an underdeveloped skill within the region and therefore technical assistance andtraining would be welcomed.
Pilot Projects on Awareness to Road Safety
3.0.15 In some of the Beneficiary Countries (notably Moldova and Georgia) special requestswere received to assist with implementing pilot projects on road safety awareness in order toaddress and stimulate behavioural change. Moldova has initiated a road safety campaign andGeorgia has made substantial efforts to improve road safety awareness: in October 2008, thewife of the President of Georgia initiated a Road Safety Day, and this has been followed up bynon-governmental organisations, who are implementing a series of actions in schools andamongst the general public designed to draw attention to road safety issues. The ProjectManagers in the EC Delegations to Moldova and Georgia also expressed their desire to seeroad safety issues incorporated into the project.
Collaboration and co-ordination w ith non-governmental agencies
3.0.16 Good working relationships have been established not only with the national authoritiesresponsible for the land transport and road safety sectors, but equally importantly the TeamLeader and KE2 have pursued a number of initiatives designed to involve non-governmentalorganisations in project implementation. KAZATO, the Union of International Road Carriers of the Republic of Kazakhstan, invited the project to participate in the 5
thEuro-Asian Road
Transport Conference in Almaty, 11th
– 12th
June 2009. During this conference many non-governmental stakeholders will be present and can be met.
3.0.17 The IRU1
has also expressed its willingness to become involved by providing access toits training facilities both in Brussels and in the region and by providing specialised trainers if request. The active involvement of the IRU would be of enormous benefit to the project andwould certainly contribute to the longer-term sustainability of project results.
Main problems and deficiencies identified
3.0.18 The main problems and deficiencies:
• Lack of legislative and regulatory harmonisation within the region and with EU Directivesand Standards
• Very limited knowledge / regulation of the transportation of dangerous goods generally
1 The International Road Transport Union (IRU) and their members in all TRACECA Countries (Associations of
International Road Transport Operators), play a key role in the development of road transport in the TRACECA region.The associations can act as catalysts for upgrading the road transport sector in the beneficiary countries. Pursuant to itswork in favour of road safety since its foundation in 1948, the International Road Transport Union is committed topromoting a culture of road safety in the road transport industry as an essential element in its Charter for SustainableDevelopment, acceded to by all its national Member Associations in 1996.
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• Very urgent and strong need for assistance to implement the digital tachograph in mostBeneficiary Countries
• Insufficient adherence to important road safety agreements AETR and ADR in manyBeneficiary Countries
• No organised parking spaces for trucks in some of the Beneficiary Countries, but this issuemust be investigated more in detail in order to get a more complete overview of the situation
• Inadequate enforcement of current legislation and regulations
• Driver attitudes and behaviour leading to non-compliance with legislation/regulations
Target groups/principal beneficiaries of the present Project
3.0.19 The target groups/principal beneficiaries in the TRACECA countries are the Ministries of Transport, Ministries of Interior and budgetary structures responsible for road and land transportsafety and security issues (policy, legislation, regulations, enforcement). Inter alia, these willinclude structures responsible for certification, accreditation and metrology.
3.0.20 Secondary beneficiaries will include National Associations of International Road Hauliersas catalysts for upgrading the road transport sector in the beneficiary countries and Civil SocietyOrganisations dealing with road and land transport safety and security issues.
Relationship with other projects
3.0.21 There are several on-going and recently completed TRACECA projects that are linkeddirectly or indirectly to this present project. During the Inception Phase, the Project Director,Team Leader and KE2 made contact with the Team Leaders of these projects in order todetermine the degree to which synergies might be achieved.
3.0.22 Co-operation has been established with the TRACECA project “Strengthening of Transport Training Capacity in NIS countries”. Maintaining close relationships with this projectwill be extremely important for the sustainability of the outputs from this present project. It isunderstood that currently road and land transport safety and security issues do not constitute asignificant part of the curriculum followed by Transport Engineers/TransportEconomists/Transport Lawyers during their undergraduate or graduate studies. Preliminarydiscussions have been held to determine whether or not a module on road and land transport
safety and security might be included in the future curriculum. This suggestion was welcomedby the TL of the sister project and it was agreed to seek ways in which the two projects mightwork together to realise the proposal.
3.0.23 There are currently two on-going TRACECA projects targeted at establishing LogisticCentres along the trans-Eurasian and trans-Caucasian corridors. Again the project team hasmade contact with the Team Leaders of these projects and good relationships have beenestablished. While at first glance there may not appear to be synergy between these twoprojects and this present project, the establishment of Logistics Centres could become a major catalyst for improving land transport safety and security in two important ways. First, theLogistics Centres will host some of the largest and most important freight forwarding companiesin their respective regions, companies that are engaged daily in trade into Europe and intoChina. The Centres will therefore provide a critical mass of operators, enabling training,
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awareness raising, certification, testing and enforcement activities to be carried out in a cost-effective manner. Secondly, the drivers who pass through the Centres are also likely to be those
involved in long-distance haulage. Awareness raising activities can therefore be targeted withprecision.
3.0.24 Finally the Project Director of the closed Central Asian National Transport Policies projectwas able to provide all documents related to this project, including analyses of regional landtransport safety and security issues. This assistance has proved invaluable and has reducedthe risk of overlap and duplication.
3.1 Project approach
3.1.1 The basic approach will remain more or less unchanged from the one outlined in the
Technical Proposal. There are no changes to the Results defined in the Terms of Reference.Nevertheless, after review of the present situation and discussions with beneficiaries and major regional stakeholders it became clear that the content and sequencing of the planned activitiesneeded to be adapted to reflect the beneficiaries’ priorities. The revised approach is explainedbelow.
3.1.2 Firstly, the approach differs in terms of emphasis and sequencing. The Terms of Reference focused upon the generic issue of legal approximation. The priorities for legalharmonisation were to be defined following a comprehensive Gap Analysis, which was to becarried out in the first 9 months of the project, and which was to constitute the basis for theelaboration of a Regional Action Plan. While these activities will still be carried out and theRegional Action Plan will be used to guide the legal and regulatory drafting process, there isone urgent issue, which we believe must be addressed immediately, and where the project can
bring immediate added value.
3.1.3 As from June 2010, the Beneficiary Countries have to be ready to implement the digitaltachograph. As we noted earlier, this is the one priority upon which there is immediate andunequivocal agreement amongst the beneficiaries. It is clear that most countries have to updatetheir transport legislation to introduce the digital tachograph, and are in the process of doing so,but the practical implementation leaves many questions for which specialized expertise isrequired. We propose therefore to start work immediately upon this element of Component 2, inadvance of the results of the Gap Analysis. The project team can provide technical assistanceon this matter, probably in the form of support to legal drafting, training (including train thetrainers) and study tours. Furthermore, if the introduction of the digital tachograph is to proceedsmoothly there needs to be good cooperation between the National Authorities and the Associations of International Road Transport Operators (IRU members). The project can help
facilitate these discussions.
3.1.4 We firmly believe that this element of the project can proceed immediately since it is aclear, discreet issue and can proceed in tandem with the work on the Gap Analysis and theRegional Action Plan. The results of the Gap Analysis and the Regional Action Plan can thenform the basis of the work of the project (related to institutional capacity building and legalharmonisation) for the period from Month 15 to the closure of the project (Month 36).
3.1.5 The second substantive change relates to Component 3, raising awareness of LandTransport and Security regulations and standards. Following discussions with the Contracting Authority and in response to requests from TRACECA National Secretariats and ECDelegations in the Beneficiary countries this Component will be widened to include elements of
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Road Safety, particularly where there is a cross-over (e.g. drink/drugs driving – seat belts –speeding).
3.2 Objectives and Results of the project
3.2.1 The overall objective of the project is to improve transport safety and securityenvironments in the EC Neighbourhood and Central Asian countries in line with Europeanstandards in the field of land transport. The overall objective is to be achieved through theimplementation of activities designed to enhance institutional and human resource capacities,strengthen the legal and regulatory framework and raise awareness.
3.2.2 The Results defined in the Terms of Reference are:
• Legal, institutional and organizational situation in land transport safety and security in thebeneficiary countries assessed and a related regional Action Plan in co-ordination withspecialised EU agencies is defined
• Institutional capacity strengthened
• Working links with related European agencies created
• The legal, regulatory and standards framework related to transport safety and security isimproved
• Capacities of inspection, certification and enforcement structures to ensure implementationof the safety and security legislation enhanced
• Awareness of transport safety and security issues amongst public institutions, road and railoperating companies and the general public is raised
3.2.3 The ToR indicates the Scope of the Services , which are to be provided by the Technical Assistance Team. We have grouped the Activities into 3 Components and will implement theproject accordingly:
1. Institutional and human resource capacity building
2. Strengthening the legal, regulatory and standards framework for Land Transport Safety andSecurity
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3.3 Planned Activities
3.3.1 The proposed sub-components / activities are set out below.
Component 1: Institutional and human resource capacity building
3.3.2 This Component has the following objectives:
• To review and upgrade the legal, institutional and organisational framework for themanagement of land transport safety and security issues in the beneficiary states
• To develop a Regional Action Plan to improve the safety and security managementinfrastructure and to define the priorities for the land transport safety and security sector inthe region
• To strengthen the institutional and human resource capacities of institutions responsible for policy-making and management issues related to land transport safety and security in theregion
• To strengthen the links with the related European agencies
Sub-component 1: Functional Review of the Land Transport Safety and Security sector
3.3.3 This sub-component is key to the successful implementation of the project, sincesubsequent actions must be based upon a thorough understanding of the institutional,legislative and regulatory base of the land transport safety and security sector and upon aconsensus around the priorities, objectives and actions to be pursued in order to ensure that the
TRACECA countries are moving into line with international and EC conventions, laws,regulations and standards.
3.3.4 The TA Team, as part of the Inception Phase, has begun the process of acquiring detailedinformation concerning the transport policies, institutional arrangements and legislative andregulatory frameworks in the various beneficiary countries. However, this process needs to beextended and developed in a more rigorous fashion. During the 1
stphase of the project we will
carry out a Functional Review of the Ministries and National Agencies in charge of these issues.This in itself is a difficult task, since there are a substantial number of Ministries and Agenciesinvolved. Many of the issues (certainly those linked to Health and Safety) are horizontal andtherefore fall within the purview of several Ministries. Similarly, issues related to accreditation,certification, metrology, inspection and enforcement do not always fall under the control of theMinistry of Transport. The initial purpose of the Functional Review will be to determine whether
there is a clear separation of policy-making, administrative and enforcement functions and toidentify clearly, which institutions are responsible for which functions.
3.3.5 This will be paralleled by an assessment of institutional capacity. Inter alia, this will involvean examination of the institutional capacity to elaborate policy, draft legislation and regulations,identify relevant standards, implement (certification, accreditation and metrology) and enforce.The Review will also address technical issues (accident database for example),communications capacity (existence of a communications policy/communications tools) andstaffing levels (are sufficient staff allocated to deal with safety and security issues). It will notaddress skills levels or training needs at this stage.
3.3.6 The Functional Review will be implemented at individual country level and brief countrydiagnostic reports will be prepared.
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3.3.7 The TA Team will also carry out a Gap Analysis with respect to the existing legal,
regulatory and standards framework related to land transport safety and security issues, notablywith respect to the digital tachograph, transport of dangerous goods and vehicle standards. KeyExpert 2 has prepared a Table of Concordance, which will be applied to the legal and regulatoryframeworks in each of the beneficiary countries.
3.3.8 Given the scope of the work, the Functional Review process will be a lengthy one. Weanticipate that it will be completed within six months of the end of the Inception Phase.
3.3.9 In Month 10 of the project, the Project Team will prepare a Synthetic Report which willinclude:
• Identification of main issues to be addressed and preliminary suggestions for priorities and objectives of the Action Plan
• Preliminary recommendations for institutional reorganisation in line withinternational best practise
• Identification of legislative, regulatory, administrative, and standards issues to beaddressed
• Identification of potential stakeholders /project partners in the private sector andamongst Civil Society Organisations
3.3.10 The Individual Country Reports and the Table of Concordance will be annexed to theSynthetic Report.
3.3.11 The Synthetic Report will be translated into Russian and circulated to all primary
stakeholders. A Debriefing Meeting will be organised in Month 11 of the project, the purpose of which will be two-fold: (a) to agree the priorities and objectives of the Regional Action Plan; (b)to appoint an Advisory Group, whose task it will be to assist in the elaboration of the Regional Action Plan. The role of the Advisory Group will be both technical and political. It will offer guidance to the Project Team during the preparatory phase of the Regional Action Plan, providecomments on drafts of the document and identify any political constraints to the implementationof the Plan.
Sub-component 2: Elaboration of a Regional Action Plan
3.3.12 Between Months 12–15, the Project Team will prepare a draft Regional Action Plan. Thework will be carried out in close consultation with Advisory Group, and with experts in theTRACECA Permanent Secretariat in Baku. While it is not possible at this stage to define the
content of the Regional Action Plan, we can indicate the structure:• Executive Summary
• Review of the conclusions and recommendations of the Synthetic Report
• Priorities and Objectives
• Institutional Reform
• Legislative and Regulatory Amendments
• Standards, Certification, Metrology and Enforcement
• Management and Implementation Arrangements
• Monitoring and Evaluation: indicators and methodology
• Timeframe
3.3.13 At the end of Month 15 / beginning of Month 16, we propose to convene a formal
meeting to discuss and adopt the Regional Action Plan. Ideally, this meeting should be held in
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Baku and be chaired by the EC Project Manager and the TRACECA Permanent Secretariat. Wewill thereafter support the implementation of the Regional Action Plan throughout the remainder
of the project.
Sub-component 3: Strengthening of Institutional Capacity
3.3.14 The Regional Action Plan is likely to throw up a series of issues related to strengtheningthe institutional capacities of the beneficiary institutions. In our Technical Proposal wesuggested two areas where we believe that we might contribute to institutional capacity building:the first related to developing consultative and communication tools. This matter is dealt withbelow in paragraph 3.3.54 onwards. The second concerns the development of improvedaccident / incident data collection, analysis and reporting tools. The European Council decidedon the 30
thNovember 1993 that a Community database on road accidents should be developed
(Council Decision 93/704/EC). The database is referred to as CARE (Community database on Accidents on the Roads in Europe). The database makes it possible to identify and quantifyroad safety problems, evaluate the efficiency of road safety measures, determine the relevanceof Community actions and facilitate the exchange of experience.
3.3.15 Unfortunately, the resources available under the project would not enable the TA Teamto make major interventions to strengthen institutional capacities at national levels. Anyinterventions would have to be regionally focused. We are convinced that it would be sensible toadapt the techniques and methodologies applied in CARE and develop a comparableTRACECA-level database of road traffic accidents/incidents. In our opinion, this would be animportant tool for use in future regional policy-making.
3.3.16 Nevertheless, the final decision on this activity will be taken consequent upon theadoption of the Regional Action Plan.
Sub-component 4: Strengthening of Human Resource Capacities
3.3.17 There are several areas in which the human resource capacities of the beneficiaryMinistries and Agencies might be strengthened. We have foreseen two different types of training intervention: under this sub-component we plan to design and deliver what might becalled generic training, familiarising the primary beneficiaries and stakeholders with the issuesrelated to road and land transport safety and security.
3.3.18 The generic training will cover the following topics:
• EU Transport Policy
• International and EU legislation and regulations related to land transport safety andsecurity, together with legislative and regulatory best practice in EU Member States
• International and EU standards related to land transport safety and security
• Road safety auditing
• Accident/incident data collection, collation and analysis
3.3.19 The TA Team will carry out a Training Needs Analysis in parallel with the work beingdone on the Functional review. Based on the outcome of that Training Needs Analysis and thecontents of the Regional Action Plan, other issues may also be included into the generic trainingprogramme.
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3.3.20 In order to ensure a common understanding of the issues amongst the counterparts, thegeneric training will take place early in the project. It is our intention to deliver the generic
training in the third quarter of 2009. A regional-level workshop will be organised in Bakutargeted at the principal policy-makers in the beneficiary countries, who have responsibility for road and land transport safety and security issues.
3.3.21 Under Component 2 below, we propose to deliver highly targeted training in respect of the use and enforcement of the digital tachograph and road transportation of dangerous goodsunder ADR.
3.3.22 During each of their missions to beneficiary countries, the Key Experts and short-termnon-Key Experts will be required to devote at least half a day per week to informal trainingsessions – the informal training sessions will focus upon management skills (policy-making,priority-setting, action planning, public awareness and communications issues) linked to themanagement of road and land transport safety and security issues.
3.3.23 The training materials from both the generic and the targeted training programmes will betranslated into Russian, collated and codified towards the end of the project into a TrainingManual.
3.3.24 In the interests of sustainability, we will necessary organise a “Train the Trainers”programme. In our opinion, at least three persons (one from the MoT, one from each of theRoads and Rail Administrations) in each of the beneficiary countries should be trained to deliver training and in-service refresher courses to colleagues and inductees. It would also be their responsibility to maintain and update the Training Manual. A regional-level workshop will beorganised in the third quarter of 2009, prior to the organisation of the generic training workshop.This will enable some of them to participate, alongside the TA team, in the delivery of formaltraining to their colleagues. The TA Team will also prepare in-service training materials, whichmay be used by the trainers throughout the lifetime of the project and beyond.
3.3.25 We will coordinate our training efforts, as much as possible, with the TRACECA project“Strengthening of Transport Training Capacity in NIS countries”.
Sub-component 5: Strengthening links with relevant European Agencies andprofessional institutions
3.3.26 During the Inception Phase, the project already established contact with the InternationalRoad transport Union (IRU). The IRU supports our project and is interested to have the projectwork with their members associations in the beneficiary countries. One of these members,KAZATO in Kazakhstan, will organise a large international conference in June 2009 on roadtransport issues and has invited the project to attend this conference.
3.3.27 Other international institutions with whom the project proposes to coordinate its effortswill be:
• United Nations Economic Commissions for Europe – Transport Section (UN/ECE) which isresponsible for AETR and ADR Agreements
• The Confederation of Organizations in Road Transport Enforcement (CORTE), which isstrongly involved in the implementation of the digital tachograph within the EU
3.3.28 In addition, the TA Team will ensure that close contacts are established and maintainedwith the leading European structures involved in road and land transport safety and security
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issues: DG TREN, the European Road Safety Observatory, the CARE database and theEuropean Road Safety Charter.
3.3.29 There are two Study Tours planned under Component 2. These Study Tours will beconstructed in such a way that they support and reinforce the development of networks.
3.3.30 In addition, the TA Team will certainly recommend that the Regional Action Plan includesthe development of a regional network. In our view this will be an important tool for a number of reasons: first, to support the implementation of the Regional Action Plan; second, to ensurecoherence and harmonization of legislation, regulations and standards; third, to enable thesharing of best practice.
Planned inputs
3.3.31 The Project Team Leader (200 man days) will be primarily responsible for theimplementation of this Component, supported by the three long-term junior regionalcoordinators (450 man days in total). The other two long-term Key Experts will be expected toprovide inputs (50 man days each), notably to the Functional Review, the Gap Analysis, draftingof the Regional Action Plan and the delivery of the training programmes. We anticipate that wewill require an additional 175 man days of short-term Senior Non-Key Experts to support thecore team. Their work will be focused upon assisting in the preparation of the FunctionalReview, the Gap Analysis, drafting of the Regional Action Plan and the delivery of the trainingprogrammes. All experts, whether long-term or short-term, will contribute to networkingactivities.
Planned outputs
3.3.32 The deliverables for this Component are as a minimum the following:
√ Individual Country Diagnostic Reports based upon the Functional Review and LegislativeGap Analysis drafted
√ Synthetic Report drafted and approved
√ Regional Action Plan drafted and approved
√ Harmonised accident and incident database
√ Staff Training Programme designed and delivered
√ 27 Trainers Trained
√ Training Materials codified into a Training Manual
√ Working links with relevant European Agencies and professional organisations established
√ TRACECA regional network established
Timing of inputs and outputs
3.3.33 Several of the activities under this Component are not time-bound and will continuethroughout the lifetime of the project: e.g. implementation of the Regional Action Plan, deliveryof informal and formal training, support to networking. However, there are a number of milestones: the Functional Review will be completed by the end of Month 9; the SyntheticReport will be delivered and discussed in Month 11; the Regional Action Plan will be finalisedand discussed at the end of Month 15, beginning of Month 16; the Training Manual will befinalised by Month 35.
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Component 2 Strengthening the legal, regulatory and standards framework for land transport safety
3.3.33 This Component has the following objectives:
• To provide policy advice and technical assistance to the establishment of a legal, regulatoryand standards framework for road and land transport safety and security;
• To strengthen human resource capacities with respect to legal and regulatory drafting andenforcement;
• To establish and implement Land Transport Security Guidelines
Sub-component 2.1: Establishment of a legal, regulatory and standards framework for land transport safety and security
3.3.35 The legislative Gap Analysis, carried out under Component 1, will identify what laws
regulations and standards need to be harmonised and the Action Plan will define the priorities,indicate the steps (new legislation/regulation/standard or amendments) that need to be takenand the timing of those steps. The Action Plan will also specify which enforcement proceduresneed to be strengthened and in what ways. An indication of what will be covered by the Gap Analysis is set out in tabular form below. This is simply an example and by no means purportsto provide comprehensive coverage of the relevant UN/ECE Agreements and EUDirectives/Regulations.
3.3.36 It is not possible to prejudge at this point where the focal point of the interventions will be:that will be determined following the completion of the legislative Gap Analysis and the draftingof the Regional Action Plan. However, during the Inception Phase, it became clear that threeissues will certainly need to be tackled during the lifetime of the project and support provided tolegal and regulatory drafting and the definition of relevant standards.
• the digital tachograph;• the transportation of dangerous goods;• vehicle standards (EURO 3-4-5)
3.3.37 However, one issue in particular, that of the digital tachograph, needs to be addressedas a matter of urgency if the beneficiary countries are to meet the deadline of June 2010 towhich they are committed. We propose therefore under this sub-component to commence workon this matter in advance of the finalisation of the Gap Analysis and the drafting of the Regional Action Plan. During the second, third and fourth quarters of 2009, the Key Expert (InternationalTransport Lawyer) will assist the national authorities in each of the beneficiary countries to draftlegislation compliant with the AETR Agreements and relevant EC Directive(s).
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3.3.38 A comprehensive legislative and regulatory drafting Work Programme for 2010 and 2011
will be defined following the adoption of the Regional Action Plan. It is clear that the projectcannot cover the vast range of Directives/Regulations/Standards and the purpose of theRegional Action Plan will be to define and agree the priorities. However, in light of the objectivesof the project, we anticipate that in the second half of 2010, the project will provide directsupport to legal and regulatory drafting linked to the transportation of dangerous goods andvehicle standards. In view of the fact that the beneficiaries are likely to be fully absorbed withmeeting their commitments under the AETR, it is improbable that we will be able to addressthese issues any earlier.
3.3.39 Several of the beneficiary states are not as yet signatories of the AETR. The TA Teamwill, if requested, provide advice and technical assistance to those national authorities, whichwish to seek membership and ratify the Conventions and Protocols. The Georgian Associationof Road Transport Operators (GIRCA), for example, has already indicated that they wish tointroduce the digital tachograph amongst their members.
Sub-component 2.2: Strengthening human resource capacities
3.3.40 The activities under this sub-component, although they complement the activitiesdescribed under paragraphs 3.3.20 – 3.3.28 above, are targeted primarily at those involved inlegal and regulatory drafting and metrology/certification/accreditation and enforcement. Theobjective is to ensure that the national authorities possess the necessary know-how and skills todraft legislation and regulations reflective of, and harmonised with, international and EUrequirements.
3.3.41 In order to maximise the effectiveness of the training, the sessions will be directly linkedto other activities planned under the project. Therefore we can say with some certainty now thattraining will be provided in the following areas:
• the digital tachograph;• the transportation of dangerous goods;• vehicle standards (EURO 3-4-5)
3.3.42 Additional training topics will be defined in the Regional Action Plan, once the prioritiesfor legal and regulatory drafting have been clarified.
3.3.43 In addition to the formal training sessions, two study tours will be organised. The first atthe end of 2009/beginning of 2010 will be to UNECE, the European Commission and a Member State (subject to the requisite agreement being reached with the relevant bodies) and willexamine all matters related to the implementation of the Tachograph. The second Study Tour isprovisionally planned for the second half of 2010 and will focus upon the subject of dangerousgoods.
3.3.44 In order to ensure sustainability, issues related to legal drafting will be included in thetrain the trainers programme (3.3.27) and codified into the Training Manual (3.3.26).
3.3.45 The participants of the training programmes and study tours will be selected in closeconsultation with the project partners and the TRACECA Permanent Secretariat in Baku.
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Sub-component 2.3: Establishment and implementation of ADR Guidelines
3.3.46 This activity is strongly linked with activity 2.1 and aims to assist the BeneficiaryCountries become party to the UN/ECE ADR Agreement. At present only Azerbaijan,Kazakhstan, Moldova and Ukraine have ratified the ADR Agreement. Most dangerous goods inthe TRACECA region are traditionally transported by rail (e.g. crude oil). However, due to thegrowth of road transport in Central Asia, one may reasonably expect a growth in thetransportation of dangerous goods by road. For safety reasons, it would be very advisable thatmore countries sign and implement ADR.
3.3.47 The TA Team will assist in the drafting of Road Transport Security Guidelines in line withthe ADR Agreement and will provide information sessions linked to the implementation of theGuidelines. The Guidelines will be available in the Russian language.
Planned inputs
3.3.48 The International Transport Law expert (350 man days) will assume primaryresponsibility for the implementation of this Component. He will be supported by the TeamLeader (90 man days), the Land Transport Safety Expert (150 man days), and the long-term junior regional coordinators (750 man days). In addition, a further 225 man days of short-termsenior expertise will be made available to assist with the detailed legal drafting.
Planned outputs
3.3.49 The deliverables for this Component are as a minimum the following:
√ Support provided to legal drafting with respect to AETR, ADR Agreements
√ Beneficiary states assisted to meet June 2010 deadline of implementation of Tachograph
√ Support provided to those beneficiary states wishing to sign the AETR and ADRConventions
√ Staff Training Programme designed and delivered
√ 27 Trainers trained
√ Training Materials codified into a Training Manual
√ Two study tours organised and delivered
√ Road Transport Security Guidelines elaborated
Timing of inputs and outputs
3.3.50 The activities under this Component are, with one or two notable exceptions, not time-bound. They will be implemented throughout the entire duration of the project. However, it ispossible to state that support to the implementation of the Tachograph will commenceimmediately and will be completed by the end of the first quarter of 2010; the first Study Tour linked to the Tachograph issue will take place in the final quarter of 2009. Work will commenceon supporting the implementation of the ADR in the third quarter of 2010 and the associatedStudy Tour will take place during the same period.
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Component 3: Awareness raising and dissemination measures
3.3.51 The objectives under this Component are:
• To elaborate and implement an awareness campaign in the field of road and landtransport safety and security;
• To elaborate and implement a communications strategy;
• To identify and disseminate “best practice” with respect to land transport safety andsecurity
3.3.52 During the Inception Phase, it was agreed with the Contracting Authority that theContractor would widen the project focus to address issues of road safety generally, but with the
proviso that the link to land transport safety and security be maintained. It was agreed thatfunds would be made available through the Incidentals Budget line to support awareness anddissemination measures.
3.3.53 In our Technical Proposal, we emphasised the importance of changing attitudes andbehaviour if one wished to ensure road and transport safety. Increasingly, this is recognised bythe responsible authorities in the TRACECA countries. Several Ministries of Transport and/or Ministries of Internal Affairs have started to implement poster campaigns targeted at drink-driving, speeding, the use of seat belts and child seats. However, these types of campaigns arestill in their infancy. The Georgian Government launched a Road Safety Awareness Day inOctober 2009 and the Ukrainian Government intends to make road safety a feature of itspreparations for, and hosting of, the 2012 European Football Championships. In addition, anumber of Non-Governmental Organisations are slowly emerging and are addressing safety
issues. During the Inception Phase meetings were held with a Georgian television producer,who wishes to develop and broadcast a series on road safety issues.
3.3.54 While we do not wish to deviate far from the suggested activities set out in the TechnicalProposal, we have been able refine them during the Inception Phase. We now foresee thefollowing activities (sub-components) under this Component:
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Sub-component 1: Assisting the responsible national authorities to prepare awareness
and communications strategies linked to road and land transport safety and security
3.3.55 Awareness campaigns have proved extremely effective in the EU in changing behaviour patterns of road users and haulage companies. It is proposed in the first instance to develop astandard template for an Awareness Campaign linked to road and land transport safety andsecurity, which might then be adapted by the individual beneficiary states for their own usage.
3.3.56 The Awareness Campaign will comprise some of the following:
9 The definition of the objectives of the awareness campaign and the principalmessages to be transmitted
9 Identification of the target populations9 The design of a logo and/or motto for the Road and Land Transport Safety and
Security scheme9 A description of the optimum way of transmitting the principal messages9 A detailed Action Plan
3.3.57 Given the limited budgets available within this project, but also available to thebeneficiary Ministries, we believe that it would be sensible to commence with theimplementation of a web-based awareness and communications programme. In cooperationwith the TRACECA IGC Permanent Secretariat and ideally utilising both the project web-siteand that of the IGC-PS, the web-based awareness and communications programme wouldmake available examples of best practice from EU Member States and from the TRACECAcountries.
3.3.58 The first dimension will be focused upon communicating information/progress/seeking
feedback with respect to road and land transport safety and security issues and will be targetedprincipally at the public authorities responsible for road land transport safety/security issues. Itwould also include the translation and dissemination of European and International policydocuments, regulations and standards. This will be done primarily through the existing formalcommunications channels set up within the framework of the TRACECA Programme and incollaboration with the TRACECA Secretariat. As the ToR suggest this will involve the use of aninteractive website.
3.3.59 The second dimension will be to advise and assist the National Authorities in each of beneficiary countries to use their own websites as tools for disseminating information toTransport Associations, transport users and the general public and for receiving comments ondraft legislation / regulations / standards.
3.3.60 The third dimension would be to use the web-site to disseminate materials on four differenttypes of best practise: first, examples of legislative and regulatory drafting; second, tools for collection and analysis of accident / incident data and its incorporation into policy andinfrastructure design decision-making; third, modern enforcement tools and practices; and finally,awareness materials targeted at getting the safety and security message over to the generalpublic and transport users.
3.3.61 We would also wish to continue discussions with the Georgian television producer todetermine whether or not the project might participate in and contribute to the preparation andbroadcasting of the television series. We strongly support this initiative. However, it raisesquestions of whether and how project funds might be used, what other sources of co-financingmight be identified and the costs of dubbing the programmes into the various languages.Nevertheless, we believe that this is a major opportunity not only for furthering the goals of the
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project but also for raising the profile of the TRACECA. Provisional estimates suggest that thecosts for making the series would be around 40,000 euro to which would need to be added the
dubbing / broadcasting costs. We would like at the very least to pursue this matter further withthe permission of the Contracting Authority. We believe that it would bring enormous valueadded in terms of the visibility of the project goals and also the TRACECA Programme.
3.3.62 Throughout the lifetime of the project, the TA Team would be available to provide adviceand assistance to the national authorities to implement their awareness and communicationsstrategies.
Sub-component 2: Supporting the development of Non-Governmental Organisationscapable of providing high-quality services linked to road and land transport-relatedissues
3.3.63 In the EU Member States, private sector and Non-Governmental Organisations play animportant role in raising awareness and communicating changes to laws, regulations andstandards. In order to achieve a multiplier effect, we will work with CSOs/Transport Owners’ Associations/Schools. By providing them with awareness materials and agreeing with themtargeted actions, it is probable that we would reach a far wider audience more effectively. TheTransport Owners’ Associations would be addressed through sub-component 1. Under this sub-component we propose a pilot action targeted at Non-Governmental Organisations.
3.3.64 The example of Georgia is a good one: a number of non-governmental organisations arebecoming involved in raising awareness of road and transport safety issues. We propose tobuild upon this example. We intend to identify and provide support to a small number of non-governmental organisations in three TRACECA countries (one country in each of the threeTRACECA regions). We suggest that the three countries should be Georgia (already developing
such initiatives), Kyrgyzstan and Moldova. We have proposed Kyrgyzstan and Moldova for thesimple reason of sharing the benefits of TRACECA more equitably amongst the beneficiarystates. There are already a large number of actions on-going in both Kyiv and Almaty. Inaddition, the regional office for the Western CIS is in Moldova and this will allow economies of scale in terms of travel / support etc.
3.3.65 The support will take the form of advice, training and the provision of materials. The goalwill be to energise these NGOs and to stimulate them to undertake awareness campaignsamongst schools and local businesses.
3.3.66 We have provisionally budgeted for a Study Tour to the United Kingdom for both publicauthorities and NGOs to witness how the public sector and civil society organisations combinetheir efforts in order to raise awareness of road and land transport safety issues. It must be
emphasised that this Study Tour is provisional – it will depend very much of whether sufficientfunds remain after the major training activities have been budgeted for. The selection of the UKas a destination is contingent upon the agreement of the beneficiaries: the UK has beenproposed since it has been at the forefront of developing awareness and communicationsmaterials and has well-developed partnerships between public and non-governmentalorganisations.
3.3.67 Finally we would link activities under this Component to those under Component 1,notably with respect to networking. For example, it would be important for the nationalauthorities, private sector organisations and civil society structures to network with agencies(both public and non-governmental) in EU Member States, such as the Royal Society for thePrevention of Accidents (RoSPA) in the UK, that have a wealth of experience and a wide range
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of materials. Such linkages will allow the beneficiaries future access to examples of bestpractice and will help sustain the outcomes of this Component.
Planned inputs
3.3.68 As we stated in our Technical Proposal, we wish to recruit a specialist in safetyawareness issues. We believe that the man days for this position should come from aredistribution of 200 man days from the Land Transport Safety Expert. We believe that it isimportant that the Safety Awareness Expert be perceived as a key member of the team and thatsafety awareness issues are acknowledged as central to the successful achievement of theproject objectives. We will submit a formal request for an Addendum to the Contract once theproposals in this Inception Report have been approved by the EC Project Manager. If thissuggestion is acceptable, the Safety Awareness Expert would assume lead responsibility for this Component under the guidance and direction of the Team Leader.
3.3.69 In addition, we have allocated 80 man days for the Team Leader and 250 man days for the long-term junior regional coordinators to this Component.
Planned outputs
3.3.70 The deliverables for this Component are as a minimum the following:
√ Awareness campaign defined and implemented
√ Web-based communications strategy designed and implemented
√ “Best practice” identified and disseminated
√ Civil Society Organisations in three pilot countries stimulated to carry out awareness
raising and communications activities in support of road and land safety and securityawareness
√ One study tour organised and delivered (provisional)
√ Support provided to prepare and broadcast a television series on road and land transportsafety issues (provisional)
√ Public authorities, private sector and Civil Society Organisations networked with sister bodies in the EU dealing with awareness raising and communication of road and landtransport safety and security issues
Timing of inputs and outputs
3.3.71 To a large extent the timing of the inputs and outputs from this Component aredependent upon (a) the concept being approved; (b) an Addendum to the contract being signed.Ideally we would wish to start the activities no later than the beginning of September 2009 andimplement them over a period of twelve months. The advantage of this approach to the timing isthat there would still be 12 months remaining in the project to roll-out the results of the pilotprojects to other beneficiary states.
3.4 Constraints, risks and uncertainties
3.4.1 In our Technical Proposal we identified a series of Assumptions to implementation. Duringthe Inception Phase, these assumptions were reviewed. The assumptions at the level of ProjectPurpose, Results and Activities hold. All the beneficiary countries have shown interest in the
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project and have expressed a willingness to provide the necessary resources to support projectimplementation and to sustain project results.
3.4.2 Similarly, the Technical Proposal included a detailed Risk analysis. The potential riskshave been assessed during the Inception Phase and a revised risk analysis is set out below.
POTENTIAL RISK COMMENT
Potential regional instability The tensions in the Caucuses remain, both within Georgiaand between Armenia and Azerbaijan. However, to datethere is no evidence that these tensions are likely to spill
over into regional instability or impact directly upon projectimplementation.
The political situation in Moldova and the deterioratingrelationships between Moldova and Romania are causes
for concern. Once again they are unlikely to impactdirectly upon project implementation. However, we will
continue to monitor the situation closely.
Change of policy priorities and personnel at BeneficiaryGovernment level
Given the length of the project, it is probable thatpersonnel within the beneficiary Governments will change(turnover / change of Governments). At present this does
not appear to constitute a major risk to projectimplementation. Policy priorities and objectives within theTransport Sector have remained reasonably consistent
over a number of years and there is no evidence tosuggest that this is likely to change. We do not anticipate
that this risk will have a major impact upon projectimplementation, although frequent changes of personnel
will undoubtedly slow down the decision-makingprocesses.
Lack of co-operation from relevant actors in the TransportSector (i.e.: IFIs, other donor agencies, private sector, etc)
in the TRACECA countries
Cooperation to date has been excellent. The IFIs andother donors have provided information and advice; the
private sector and NGOs have also expressed awillingness to participate in the project. We no longer
consider this to be a risk.
Slow approval of Inception, Progress Reports, Addenda or Administrative Orders
The collaboration between the Contracting Authority andContractor has been excellent. All requests for
Administrative Orders have been met in a timely manner.We no longer consider this to be a risk.
Slow approval of outputs by beneficiary Since the project is in the Inception Phase, it is prematureto gauge the responsiveness of the beneficiaries to project
outputs.
Insufficient support and co-operation by the Governments& beneficiary institutions
There is ample evidence that the Governments andbeneficiary institutions are both supportive and co-
operative. There is a widespread recognition that theglobal downturn in trade requires Governments to act.
Similarly the Governments acknowledge the importance of transport safety and security to enhanced trade.
Decision-making responsibilities are distributed amongsta number of different institutions which do not coordinate
effectively
It is clearly the case that decision-making responsibilitiesare spread amongst a number of line Ministries and
budgetary institutions. It is too early to determine whether or not that will become a barrier to efficient
implementation. We will continue to monitor this risk.
Rules and regulations are subject to variations andinterpretations and there are inconsistencies between
the legal frameworks of the beneficiary countries
Once again this is clearly the case. Indeed one of theobjectives of the project is to eliminate inconsistencies
and to harmonise the legislative and regulatoryframeworks. We have not encountered any opposition to
this goal. What is likely to be more problematic is thematter of enforcement and this will need to be constantly
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Inability of the stakeholders to agree upon priorities,objectives and actions to be included in the regional
Action Plan
During the Inception Phase there has been a remarkabledegree of consistency amongst the stakeholders as to the
priorities of the regional Action Plan. There is already aconsensus that the issues of the Tachograph and the
safe/secure parking need to be addressed swiftly. Theremay be greater difficulties in obtaining a consensus further downstream once these two issues have been addressed.
3.4.3 The Project team will continue to monitor these risks and maintain vigilance in case other risks may arise. Good working relationships have been established between the Contractor andthe EC Project Manager and the TRACECA National Secretariats. In our opinion, this is theoptimum way in which to minimise the level of uncertainties and risks and to mitigate their potential influence on project performance. Indeed, in the absence of a formal Project SteeringCommittee, these bilateral relationships constitute the principal tool for solving problems.
3.5 Project planning
3.5.1 Work Plan
3.5.1.1 The Work Planning documents are appended in tabular format in Annex 2 to the presentReport:
• The Overall Plan of Operations
• The Overall Output Performance Plan
• The Plan of Operations for the next reporting period June-August 2009
3.5.1.2 The ToR and Contract specify the end date as February 2012.
3.5.2 Deployment of experts
3.5.2.1 Based on the experience and findings of the Inception Phase, we would respectfullysuggest a re-allocation of professional inputs in order to meet the revised project requirements. A formal request for an Addendum to the Contract will be submitted to the Contracting Authority.
3.5.2.2 The core team of currently comprises the following Key Experts:
• Transport Security Expert/Team Leader: To be appointed (500 man days)
• Transport Safety Expert: Neville Edward Weeks (400 man days)
• International Transport Law Expert: Menno Langeveld (400 man days)
These experts are supported by three long-term junior experts (1,500 man days) and a pool of senior short-term expertise (550 man days).
3.5.2.3 In light of the planning proposed in this Inception Report we propose the followingadjustment:Î That the 400 man-days of the Transport Safety Expert be split equally between the
current expert, Mr. Weeks, and a second expert with experience in Road Safety (andparticularly Road Safety awareness).
3.5.2.4 This redeployment will enable the core team to cover each of the three Components.The senior short-term non-key experts will then be deployed to support the core team during theimplementation of Components 1 & 2.
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3.5.2.5 The key experts will be travelling around the beneficiary countries on a very regular
basis and will guide the regional support points and the regional co-ordinators to achieve theproject objectives. A modus operandi has been agreed with the EC Project Manager, wherebyprior to the mobilisation of a key expert she will be informed of the location, length and purposeof the mission, thus removing any potential for wastage of valuable resource time.
3.5.2.6 The Planning Tables show 3020 man days to be used for the implementation of thethree components. 330 man days are reserved for project management tasks, of which 224were used during the Inception Phase.
3.5.3 Reporting
3.5.3.1 The Progress Reports will be prepared in accordance with the following schedule:
Report Date of submi ssion
PR1 August 2009
PR2 February 2009
PR3 August 2010
PR4 February 2011
PR5 August 2011
Draft Final Report* January 2012
Final Report* February 2012
* It is assum ed that although the Contract was signed in November 2008, the duration o f the contract w ill be 36months as from the start-date of the project March 2009.
3.5.3.2 In accordance with the terms of Reference all reports will be produced in the Englishand Russian languages and distributed according to the template below.
DISTRIBUTIONHard copyin English
Hard copy i nRussian
CD English &Russian
EC Project Manager in Brussels 2 1
Beneficiary countries relevant units 1 1
TRACECA National Secretaries of beneficiary countries 1 1 1
TRACECA Permanent Secretariat in Baku 2 2 1
TACIS Coordinating Unit (Beneficiary States) 1 1 1
EC Delegations in the beneficiary State 1 1 1TACIS Monitoring Team (Regional Office) 1 1 1
3.5.3.3 Each Progress Report will contain:
• A description of overall project progress to date measured against the previous Quarter, Annual and Overall Work Plans and Objectively Verifiable Indicators
• Deviations from the Work Plan with explanations, if any
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• Problems encountered likely to inhibit the achievement of Project Results and solutionsadopted
• Identification of factors likely to inhibit the achievement of Project Purpose and proposedsolutions
• The Interim Progress Reports will include as Annexes all technical reports, training,public awareness and dissemination materials etc. produced during the reporting period
• Periodic invoice
3.5.3.4 In addition, the EC Project Manager has requested that brief monthly reports beprepared during the Implementation Phase of the project.
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4. Project planning for next reporting period
In compliance with the ToR the next reporting period runs from the 1st
June to the 31st
August2009. During this period we will concentrate upon the following:
Project Management• Organisation of Kick-Off Conference A Project Kick-Off Conference will be held in the first week of September 2009. The objectiveof the K-O Conference is to discuss the content of the Inception Report and particularly theproject planning• Project reportingThe Team Leader will continue the practise of providing brief Monthly Reports• Negotiation of addenda
Once the Inception Report has been accepted the Senior Project Director and the TeamLeader will commence negotiations with the EC Project Manager to conclude the Addendanecessary to permit the implementation of the Inception Report and the planning containedtherein• Recruitment of STEsThe Senior Project Director and Team Leader will prepare a Terms of Reference / Taskdescriptions for the recruitment of Senior Short term Experts from the beneficiary states toassist with the carrying out of the Functional Review and the legislative Gap Analysis
Component 1:During the next reporting period, the TA Team will commence work on the Functional Review and thelegislative Gap Analysis. In addition, the long-term regional coordinators will begin the necessarypreparatory work for the design and implementation of the generic training programmes.Component 2:The Key Expert (Transport Law) will start work on support the introduction of the Tachograph and
together with the long-term regional coordinators will begin the necessary preparatory work for theimplementation of the specialist training programme.Component 3:The Senior Project Director will identify and facilitate the recruitment of a Road Safety / Public Awareness expert (subject to the necessary approvals being obtained). The expert, once in post, willconcentrate during this period upon the drafting of template for awareness & communicationsstrategy and together with the long-term regional coordinators will begin the process of identifyingpotential partner NGOs in the pilot countries.
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1. BACKGROUND INFORMATION1.1 Beneficiary country
The beneficiary countries are Armenia, Azerbaijan, Georgia, Kazakhstan, the Kyrgyz Republic,Moldova, Tajikistan, Ukraine, Uzbekistan. The other TRACECA countries Bulgaria, Romaniaand Turkey should be closely associated to the project's horizontal activities such as regionalworkshops and symposiums.
1.2 Contracting Author ity
The contracting Authority will be the European Commission EuropeAid Cooperation Office inBrussels.
1.3 Relevant regional background
The TRACECA programme (Transport Corridor Europe Central Asia) was established in 1993by the Baku Agreement. At present it includes 13 nations consisting of the above mentionedbeneficiary states together with Bulgaria, Romania, Turkey and Turkmenistan. The aims of TRACECA are to improve trade and transport along the Europe - Caucasus - Asia corridor through:- Stimulating the co-operation among the participating states for trade development in theregion;- Promoting optimal integration of the international transport corridor Europe-Caucasus-Asia"TRACECA" into Trans-European Networks (TENs);
- Identifying factors hindering the development of trade and transport systems;-Promoting TRACECA projects as means to attract loans from International FinancialInstitutions (IFIs) and private investors;
Signed in 1998 at a Baku Summit and presently ratified by 12 countries, the TRACECAMultilateral Agreement is aimed at:
- Development of economic relations, trade and transport communications in the regions of Europe, Black Sea area, Caucasus, Caspian Sea region and Asia;
- Facilitation of access to the international market of road, air and railway transport andalso commercial maritime navigation;
- Promotion of international transport of goods and passengers and international transportof hydrocarbons;
- Ensuring of traffic safety, security of goods and environment protection;
- Creation of equal conditions of competition between different types of transport.
Unfortunately, transport safety, security and environmental (SSE) issues in the CIS countriescontinue to hamper transport development. The degree of concern for a number of nationalauthorities is underlined in the beneficiaries 'Poverty Reduction Strategy Papers and NationalTransport Strategies'. In particular, they highlight the priorities related to the harmonization of their transport legislation and regulations with the European standard, and the integration of their transport network into regional transport corridors. These priorities are one of the priorityissues identified by the EC and the beneficiary countries during the "Baku initiative" workinggroups. They were adopted at Ministerial level, in May 2006 during the Second MinisterialConference on Transport Cooperation between the EU, Black Sea and Caspian Sea littoralStates and their Neighbors, by Azerbaijan, Armenia, Belarus, Bulgaria, Georgia, Kazakhstan,
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Kyrgyzstan, Moldova, Romania, the Russian Federation (as an observer), Tajikistan, Turkey,Ukraine and Uzbekistan with representatives of the European Commission.
In the field of railway security, the European Commission adopted in 2006 a series of measuresto support the revitalisation of the railway sector by removing obstacles to the circulation of trains throughout the European rail network. The measures include a Communication on thesimplification of certification of railway vehicles, a proposal to recast the existing RailwayInteroperability Directives and to modify the Regulation establishing a European Railway Agency and the Railway Safety Directive.
In the field of road transport, the Community policy objectives for road transport are to promoteefficient road freight and passengers transport services, to create fair conditions for competition,to promote and harmonise safer and more environmental friendly technical standards, to ensurea minimum fiscal and social harmonisation and to make sure that the rules in road transport areeffectively applied without discrimination. The existing legislation applying to road transportservices establishes common rules on access to the market and to the profession, sets minimalstandards for working time, driving and rest periods (including enforcement and the use of tachograph), sets minimal annual vehicle taxes and common rules for tolls and user charges.
1.4 Current state of affairs in the relevant sector
At present the different members of the TRACECA area are at different levels and stages of adhering, adopting and implementing international conventions regarding the road and railwaystransportation sector, especially dangerous goods and international standards on noise andemission reductions.
Technical standards are a major issue, as there is still a predominance of Russian standards.
Also the law enforcement represents a big challenge to the majority of TRACECA members. Aharmonization throughout the TRACECA area would certainly have a considerable positiveimpact on reaching the ambitious goals on security and safety.
As some administrations dealing with transportation issues are still very young, awareness,guidance and capacity building remain a high priority. This being said, the structures andinstitutions need to be adapted in order to meet the challenges of the future contributing to thesustainable development of the national economies, but also to improve and ease the tradewithin the TRACECA member areas as well as with their international trade partners.
The member countries should be encouraged to benchmark and exchange expertise on aninternal level enabling them to put into place international best practices meeting the specificcountry needs regarding transport strategies and policy making, standards to put in place and
facilitate the implementation and monitoring, i.e. law enforcement of the decisions taken.
1.5 Related programmes and other donor activi ties
The priority of Transport safety and security was discussed and approved by all representativesof the beneficiary Ministries of Transport (TRACECA National Secretaries) in the framework of TRACECA and Baku initiative working groups. During the identification and formulation phases,coordination meetings were organised with international organisations dealing with transportsafety and security, and in particular with the UN Economic Commission for Europe (UNECE)which is implementing a Joint UNECEUNESCAP Project on developing Euro-Asian transportlinks - Phase II; the International Financial Institutions, including the EIB, EBRD, ADB and WorldBank’s current and future infrastructure development projects in the region
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In addition, during the preparation of the project, coordination will be maintained with other ECfinanced transport projects, such as those implemented under national, regional, thematic
action programmes, etc., and other donors’ transport programmes and initiatives in theTRACECA region, such as the UN Special Programme for the Economies of Central Asia(SPECA); the UN Economic and Social Commission for Asia and the Pacific (UNESCAP);Central Asian Regional Economic Cooperation (CAREC), created by the Asian DevelopmentBank (ADB) with participation of the Central Asian States, including Azerbaijan and China.
2. OBJECTIVE, PURPOSE & EXPECTED RESULTS
2.1 Overall objective
The overall objective of the project is to improve transport safety and security environments in
the EC neighbouring and Central Asian countries in line with European standards in the field of land transport.
2.2 Purpose
In particular, the project will provide technical and capacity-building assistance to the beneficiarycountries transport administrations in order to support and strengthen:
- Legal, institutional and organizational structures related to land transport safety andsecurity;
- Rule-making and legal standards for safety practice, institutional capacity and awarenessin line with requirements of international and European standards;
- National security authorities and main security operators in the sector of land transport,
establishment of security guidelines and customs-related guidelines for operatorscarrying or handling dangerous goods;- Inspection, training programmes and certification structures in charge of implementing the
safety and security legislation.
2.3 Results to be achieved by the Consultant
The results to be achieved by the Consultant of this assignment are the following:
Result 1 - Legal, institutional and organizational assessment of the situation in land transportsafety and security in the beneficiary countries and definition of a related regional Action Plan incoordination with specialised EU agencies;
Result 2- Support to rule-making and to the establishment of legal standards for safety practice(including for freight services and the transport of dangerous goods), institutional capacity buildingand awareness raising activities in line with requirements of European standards; support to thecreation of working links with the related European agencies (EAR);
Result 3- Technical assistance to the national security authorities and main security operators inthe sector of land transport in order to establish Road and Rail Transport Security Guidelines andcustoms-related guidelines for drivers and operators carrying or handling dangerous goods;
Result 4- Provision of technical expertise and on-the-job training for the development of inspection, training programmes and certification structures to ensure implementation of the safetyand security legislation.
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Result 5: Implementation of a safety, security and environment awareness programme.
3. ASSUMPTIONS & RISKS
3.1 Assumptions underlying the project intervention
The principal assumption is that the main beneficiaries and other project counterparts are ableto actively support the project and participate in project implementation by providing necessarymanpower, equipment and facilities.
The Ministries of Transport and TRACECA National Secretariats are expected to support theproject in all its phases. In particular, access to necessary and relevant information and datashould not be prevented.
Furthermore, political continuity and stability in the countries is a key factor to the success of theproject and that the beneficiary countries are fully committed pursuing their policy of regionalintegration and of establishing a viable, secure and safe land transport sector.
3.2 Risks
Major risks, which might affect the objectives of this project, are:
• Political instability in some of the beneficiary countries
• Lack of co-operation between the beneficiary countries on the cross-regional level
• No commitment to address the different legal and organisational bases of thebeneficiaries’ authorities involved
• Rules and regulations are subject to variations and interpretations
The risks linked to regional cooperation are to be minimised by the use of some alreadyfunctioning coordination mechanisms between TRACECA countries.
4. SCOPE OF THE WORK
4.1 General
4.1.1 Project descriptionIn the field of road transport, the EC policy objectives for road transport are to promote efficientroad freight and passengers transport services, to create fair conditions for competition, topromote and harmonise safer and more environmental friendly technical standards, to ensure aminimum fiscal and social harmonisation and to make sure that the rules in road transport areeffectively applied without discrimination. The existing legislation applying to road transportservices establishes common rules on access to the market and to the profession, sets minimalstandards for working time, driving and rest periods (including enforcement and the use of tachograph), sets minimal annual vehicle taxes and common rules for tolls and user charges.
In the field of railway security, the EC adopted in 2006 a series of measures to support therevitalisation of the railway sector by removing obstacles to the circulation of trains throughout
the European rail network. The measures include a Communication on the simplification of
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certification of railway vehicles, a proposal to recast the existing Railway InteroperabilityDirectives and to modify the Regulation establishing a European Railway Agency and the
Railway Safety Directive.
This project is expected to improve transport safety and security environments in the ECneighbouring and Central Asian countries in line with international and European standards inthe fields of land transport. Accordingly, the project will develop six main components to provide technical assistance to thebeneficiary countries in order to:- Define regional Action Plans in the field of road and railway safety and security in
coordination with the European Commission and its specialised EU agencies, based on alegal, institutional and organisational assessment of the existing situation of land transportsafety and recommendations on key improvements to be implemented;
- Improve land transport safety, security and environmental rules and procedures improvedin accordance with requirements of international and EU conventions, awareness onEuropean standards is raised, links with the related European agencies are strengthened;
- Strengthen regulatory authorities, authorities in charge of safety/license and accidentinvestigation, as well as main security operators and independent certification authorities;
- Improve legal standards for land transport safety practice (including the ones for thetransport of dangerous goods) and minimal standards for working time, driving and restperiods (including enforcement and the use of tachograph), minimal annual vehicle taxesand common rules for tolls and user charges.
4.1.2. Geographical area to be covered:
The project should cover Armenia, Azerbaijan, Georgia, Kazakhstan, the Kyrgyz Republic,Moldova, Tajikistan, Ukraine, and Uzbekistan.
4.1.3 Target groups
The project's main stakeholders will be the Ministries of Transport, responsible for thesustainable development of the transport policy and the transport infrastructure in their countries.
The target groups will include personnel from:- Land Transport Departments (Road & Rail) in the Ministries of Transport;- Road and Rail Agencies concerned with Regulation, Safety Oversight and Accident
Investigation;- Other Ministries involved in safety and security issues like Ministry of Environment,
Ministry of Interior;
- Law enforcement agencies (customs authorities and police forces);- Technical agencies;- Pedagogical and administrative departments of training centres, academies, schools that
are concerned with land transport disciplines.
4.2 Specific activi ties
The Consultant will perform the following tasks:
Component 1: Legal, institutional and organizational assessment of the situation in landtransport safety and security in the beneficiary countries and definition of a related regional Action Plan in coordination with specialized EU agencies.
- Analysis of the legal framework in place regarding the road and railways sub-sector
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- Assessment of roles and mandates of the Ministries in charge of the transport sector andagencies in place
- Assessment of organizational structures in line with international best practices andspecific needs of the beneficiary countries
- Formulation of recommendations to improve the general safety and security standards- Development of a realistic regional action plan with time-lines and indicators, to be
discussed within a dedicated regional working group.
Component 2: Support to rule-making and to the establishment of legal standards for safetypractice (including for freight services and the transport of dangerous goods), institutionalcapacity building and awareness raising activities in line with requirements of Europeanstandards.
- After assessment of the situation recommend and propose a working plan on topics to bedealt with, as well as setting the priorities;
- Propose a realistic road map of initiatives to implement;- Training and capacity-building on relevant legal standards and practice in line with
requirement of international and European standards (including the ones for the transportof dangerous goods) and minimal standards for working time, driving and rest periods(including enforcement and the use of tachograph), minimal annual vehicle taxes andcommon rules for tolls and user charges;
- Awareness raising activities on legal standards and practice in line with requirement of international and European standards;
- Support establishment of working links with relevant European Agencies and professionalinstitutions; ensure sustainability of the established working links;
- Organize possible study tours, follow-up feedback of study tours participants andformulate lessons learnt from the study tours;
Component 3: Technical assistance to the national security authorities and main securityoperators in the sector of land transport in order to establish Road and Rail Transport SecurityGuidelines and customs-related guidelines for drivers and operators carrying or handlingdangerous goods.
- Through panels with the beneficiary institutions and agencies discuss and agree on thedevelopment of relevant security guidelines;
- Support the implementation of the guidelines;- Organize information sessions to the public and private sector;- Organize possible study tours, follow-up feedback of study tours participants and
formulate lessons learnt from the study tours
Component 4: Provision of technical expertise and on-the-job training for the development of inspection, training programmes and certification structures to ensure implementation of thesafety and security legislation.Through assessment of training needs with the beneficiary institutions develop a training planand implement training sessions for the development of inspection, training programmes andcertification structures to ensure implementation of the safety and security legislation. In the endphase of the project, a Report shall make recommendations for possible future programmesthat would build on the successes of this project or provide extra activities in areas that wereeither not so successful or not covered. Emphasis should be put on sustainability measuresbeyond the duration of this project
Component 5: A safety, security and environment awareness programme.‐ Develop a web-based awareness programme in cooperation with the TRACECA
Permanent Secretariat;‐ Propose and implement awareness raising measures in the beneficiary countries.
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During the project, communication and visibility actions should be undertaken upon agreementof the Contracting authority. A Communication Plan should be implemented, including a website
and newsletters, possibly press releases, press conferences, leaflets, banners and promotionalitems related to the project activities. In particular, regular update on the project should be sentto the TRACECA Permanent Secretariat for their quarterly newsletter. EC templates andguidelines should be respected for any communication action. At the end of the project, asummary of the achieved project's results should be provided along with the final report, as abasis for further communication and visibility actions.
4.3 Project management
4.3.1. Responsible body
The project will be managed by the EuropeAid Co-operation office. The Team Leader will beresponsible for managing the contract.
4.3.2. Management st ructure
A regional project office is to be established in one of the TRACECA countries. This projectoffice will be considered as the base of operations. It should be noted that this project willprobably be managed by the EC Delegation in Georgia (Tbilissi).
Secondary project offices can be established in other beneficiary countries. Changes in thelocation of the offices could be considered during the inception phase in close coordination withthe EC delegations in those countries and with prior approval of the Contracting Authority.
The location of regional events should be proposed by the Consultant and should be balancedamong the different TRACECA regions or take place in an EU member state. The Consultant isrequested to clearly describe the intended activities, which might be adjusted within theinception phase of the project.
It has also to be noted that in the course of the project implementation, frequent travelling will berequired to all TRACECA countries, Brussels and other locations as appropriate and agreedwith the Project Manager, based on the project needs. The cost for this travelling will beprovided from the incidental expenditure budget.
4.3.3 Facilities to be provided by the Beneficiary Authoriti es
The project partners in the beneficiary countries will assist and facilitate the implementation of the project, by providing necessary contacts and liaison with local authorities, by free access toall information and required documentation (not concerning information considered militaryand/or classified), by providing the required counterpart staff and by timely decision makingprocedures as required during the contract implementation. The project partners in therespective countries will provide basic office facilities for the consultants when working for their respective institutions, will assist in obtaining required visas and customs clearances for theeventual contractor’s imported equipment and will provide any other assistance required for thegood implantation of the project.
The project partners shall also ensure that selected candidates for training measures canparticipate in training measures during the contract execution while paying the regular indemnities. Staff of the Project Partner shall not be paid from project funds. However,
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additional project related costs such as travel costs during study tours or training sessions willbe taken over by the project incidental budget.
The Project Partner should also provide all possible assistance to solve unforeseen problemswhich the Contractor may face. The possible failure to solve some of the Contractor's problemsencountered locally will not free the Contractor from meeting its contractual obligations vis-à-visthe Contracting Authority.
5. LOGISTICS AND TIMING
5.1 Location
The project area covers Armenia, Azerbaijan, Georgia, Kazakhstan, the Kyrgyz Republic,Moldova, Tajikistan, Ukraine, Uzbekistan, as well as Bulgaria, Romania and Turkey as
associated countries.The main project office will be located in one of the beneficiary countries (it should be noted thatthis project will probably be managed by the EC Delegation in Georgia (Tbilissi). Secondaryproject offices can be possibly established in other beneficiary countries. The consultant willpropose locations for the project office(s), which will be confirmed during the inception phase inclose coordination with the Contracting Authority.
The location of regional events should be proposed by the Consultant and should be balancedamong the different TRACECA regions or take place in an EU member state. The Consultant isrequested to clearly describe the intended activities, which might be adjusted within theinception phase of the project.
It has also to be noted that in the course of the project implementation, frequent travelling will be
required to all TRACECA countries, Brussels and other locations as appropriate and agreedwith the Project Manager, based on the project needs. The cost for this travelling will beprovided from the incidental expenditure budget.
5.2 Commencement date & Period of execution
The intended commencement date is November 2008 immediately following signature of thecontract and the period of execution of the contract will be 36 months from this date. Pleaserefer to Articles 4 and 5 of the Special Conditions for the actual commencement date and periodof execution.
6. REQUIREMENTS
6.1 Personnel
6.1.1. Key Experts .
All experts who have a crucial role in implementing the contract are referred to as key experts.The contract staff will have relevant and extensive professional experience and will be fluent inEnglish. For each sector of activity, each relevant key expert is expected to lead a team of non-key experts and consequently have management capacity. The profiles of the key experts for this contract are as follows:
The profiles of the key experts for this contract are as follows:
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Key Expert 1: Land transport safety expert (minimum 400 w/days)
Qualifications and skills• University degree or equivalent in land transport safety or related fields
• Proven skills in project management
• Fluency in English; proficiency in Russian would be considered an advantage
General Professional experience
• Preferably 10 years experience in safety aspects of land transport (rail/road);
• Experience in international projects;
Specific professional experience
• At least 5 years specific experience in training/capacity building in safety aspects of land transport (rail/road).
• Excellent command of English is essential and knowledge of the Russian language ishighly desirable.
• Field experience in the NIS would be an advantage.
Key Expert 2: Land transport security expert (minimum 400 w/days)
Qualifications and skills
• University degree or equivalent in land transport security or related fields
• Proven skills in project management
• Fluency in English; proficiency in Russian would be considered an advantage
General professional experience
• Preferably 10 years experience in land transport security (road/rail).• Experience in international projects;
Specific professional experience
• At least 5 years specific experience in training/capacity building in the field of securityaspects of land transport (road/rail).
• Experience with transport of dangerous goods, technical inspection and certification of vehicles
• Excellent command of English is essential and knowledge of the Russian language ishighly desirable.
• Field experience in the NIS would be an advantage.
Key Expert 3: International Transpor t Law expert (minimum 400 w/days)
Qualifications and skills University degree or equivalent in international transport law or related fieldsFluency in English; proficiency in Russian would be considered an advantage
General professional experiencePreferably 5 years international experience in international transport law/conventionsExperience in international rail / road transport projects
Specific professional experience At least 5 years international experience in the field of harmonization with international transport
law/conventions
Experience in NIS countries would be considered an advantage
Land Transport Safety and SecurityEuropeAid/126786/C/SER/MultiThis Project is fundedby the European Union
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The Contractor is requested to nominate one member of the team of the key experts as the
project's Team Leader . For this purpose, the selection should also be in accordance withfollowing demonstrated criteria:
• Experience in managing a team composed of expatriate and local technical specialists;
• good understanding of local and regional socio-political aspects;
• supervising and co-ordinating all aspects of the project’s technical work;
• ensuring good communication with the Project Partners;
• organising and overseeing administrative and logistic support;
• good reporting and drafting skills. Additional 100 working days should be provided for the Team Leader.
The Consultant is responsible to ensure that all necessary qualifications for the described tasksare covered.
The Contractor's proposal must fully describe the key experts to be assigned to the project, their precise domain of expertise applicable to the project, their individual roles in the achievement of the project objectives, the timing, duration and location of their assignments. Time spent in thebeneficiary states and at home office is to be clearly shown and should not be less than 75% of the available person-days.
Tenderers must supply an annex of the 'Estimated number of working days' worksheetcontained in the spreadsheet for Annex V to their Organisation and Methodology (Annex III) todemonstrate the correspondence between the proposed methodology and the expert inputs.
6.1.2. Other experts
CVs for experts other than the key experts must not be provided in the tender. An indicative listof the specific fields on which these experts will work nevertheless should be attached. TheConsultant will provide an indicative database in the expert selection methodology. All expertsmust be independent and free from conflicts of interest in the responsibilities entrusted to them.
The selection procedures used by the Consultant to select these other experts shall betransparent, and shall be based on pre-defined criteria, including professional qualifications,language skills and work experience. The findings of the selection panel shall be recorded. Theother experts shall be subject to prior approval of the European Commission.
The Consultant shall propose the other experts as required according to specific Terms of Reference that will be prepared for each specific mission. These profiles must indicate whether they are to be regarded as long-term/short-term and senior/junior so that it is clear which feerate in the budget breakdown will apply to each profile. Prior to each mission the Consultant will
provide the Commission with specific Terms of Reference and the CVs for each position of proposed expert. For each assignment the Consultant will provide the necessary backgrounddocumentation. Short-term experts will also be expected to provide a report at the end of their assignment. The selection of experts shall be subject to approval by the European Commission.
Note that civil servants and other staff of the public administration of the beneficiary countrycannot be recruited as experts.
6.1.3. Support staff & backstopping
It is mandatory to have a backstopping available for this contract. Backstopping costs areconsidered to be included in the fee rates.
Land Transport Safety and SecurityEuropeAid/126786/C/SER/MultiThis Project is fundedby the European Union
51
6.2 Office accommodation
Project Office: Office accommodation of a reasonable standard and of approximately 10 squaremetres for each expert working on the contract is to be provided by the Consultant. The costs of the Project Offices are to be covered by the provision for incidental expenditure. The cost per square meter must be in line with the prevailing local market rate for office accommodation of areasonable standard.
Office Space for Experts on mission: Office accommodation of a reasonable standard shall bemade available to the experts free of charge by the respective partner institutions in accordancewith the missions of the consultant.
6.3 Facilit ies to be provided by the Consultant
The Consultant shall ensure that experts are adequately supported and equipped to work
effectively and will be responsible for all charges relating to the rental and running of the office(i.e. furniture, personal computers, phones, fax machines, electricity, heating, etc).
The space available will be sufficient to provide adequate working conditions for project team. Inparticular it shall ensure that there is sufficient administrative, secretarial and interpretingprovision to enable experts to concentrate on their primary responsibilities. It must also transfer funds as necessary to support its activities under the contract and to ensure that its employeesare paid regularly and in a timely fashion.
If the Consultant is a consortium, the arrangements should allow for the maximum flexibility inproject implementation. Arrangements offering each consortium partner a fixed percentage of the work to be undertaken under the contract should be avoided.
6.4 Equipment
No equipment is to be purchased on behalf of the Contracting Authority / beneficiary country aspart of this service contract or transferred to the Contracting Authority / beneficiary country atthe end of this contract. Any equipment related to this contract which is to be acquired by thebeneficiary country must be purchased by means of a separate supply tender procedure.
6.5 Incidental expenditure
The Provision for incidental expenditure covers the eligible incidental expenditure incurredunder this contract. It cannot be used for costs, which should be covered by the contractor aspart of its fee rates, as defined above. Its use is governed by the provisions in the GeneralConditions and the notes in Annex V of the contract. It covers:
1. Travel costs and subsistence allowances for missions to be undertaken as part of
this contract to and from the base of operations in the beneficiary countries;
2. Regional coordination meetings;
3. Seminars, workshops and study tours;
4. Translation and publication of documents and studies relevant to theimplementation of the project;
5. Office rent (if applicable);
6. Office running costs (stationery, communication costs, energy) and excludingpurchase of office equipment
Land Transport Safety and SecurityEuropeAid/126786/C/SER/MultiThis Project is fundedby the European Union
52
The Provision for incidental expenditure for this contract is EUR 800,000. This amount must beincluded without modification in the Budget breakdown.
The Consultant will need prior written approval from the Contracting Authority before spendingthe funds related to the components (2), (3), (5). No written approval from the Contracting Authority will be needed for spending funds related to the components (1), (4) and (6), however all supporting documents must be kept by the Consultant as indicated in art. 24 of the GeneralConditions for Service Contracts financed by the EC.
Any subsistence allowances to be paid for missions undertaken as part of this contract to andfrom the base of operations in the beneficiary countries must not exceed the per diem ratespublished on the Web site http://europa.eu.int/comm/europeaid/index_en.htm at the start of each such mission.
6.6 Expenditure verifi cation
The Provision for expenditure verification relates to the fees of the auditor who has beencharged with the expenditure verification of this contract in order to proceed with the payment of pre-financing instalments if any and/or interim payments if any.The Provision for expenditure verification for this contract is € 20,000. This amount must beincluded without modification in the Budget breakdown.
7. REPORTS
Please refer to Article 26 of the General Conditions. Interim progress reports must be preparedevery six months during the period of execution of the contract. They must be provided alongwith the corresponding invoice, the financial report and the expenditure verification reportdefined in Article 28 of the General Conditions. There must be a final report, a final invoice and
the financial report accompanied by an expenditure verification report at the end of the period of execution. The draft final report must be submitted at least one month before the end of theperiod of execution of the contract. Note that these interim and final reports are additionally toany required in Section 4.2
Each report shall consist of a narrative section and a financial section. The financial sectionmust contain details of the time inputs of the experts, of the incidental expenditure and of theprovision for expenditure verification.
A short Inception Report will be issued within 3 months of the start of the project. It shallsummarise initial findings and propose any modifications to the methodology and work plan. Itwill also confirm or modify institutes/organisations/consulting bodies to be directly involved in theimplementation. The report distribution lists will be included.
In addition to the above formal reports, the Contractor shall provide such information on projectprogress as it is reasonable required by the Methodology and the European Commission, andshall regularly inform the Commission of political, economical or institutional developments of relevance to the project. The Contractor shall in particular provide electronic and hard copies of recommendations elaborated, training material prepared under this project, report of short-termspecialists, any other document which requires prior approval as stated in the projectdescription above.
No report or document shall be distributed to third parties prior to the approval by the ProjectManager of the European Commission. The contractor shall pay particular attention to theconfidentiality of data. Reports, as well as press statements, etc., made by the contractor willmake clear that any opinions expressed therein remain those of the Contractor and do notrepresent the opinion of the European Commission.
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Copyright on all reports and other material prepared under this contract shall reside with theEuropean Commission.
Contractors are advised to print all the above-mentioned reports double sided.
7.1 Submission & approval of progress reports
All reports are to be delivered in the numbers, languages and locations as follows:
Bound Hard Copy Electronic Copy onCD
English Russian English & Russian
EC Project Manager Brussels 2 1
Beneficiary countries relevant units 1 1
TRACECA National Secretaries of beneficiarycountries 1 1 1
TRACECA Permanent Secretariat in Baku 2 2 1
TACIS Coordinating Unit (Beneficiaries States) 1 1 1
EC Delegations in the beneficiary States 1 1 1
Tacis Monitoring Team (Regional Office) 1 1 1
The Project Manager is responsible for approving the progress reports.
In order to implement the reports on the TRACECA web site and to allow further dataprocessing, reports must be provided by the contractor under an electronic file “.doc” or “.pdf”.In any case, all texts must be composed with common and scan-able fonts, including for tables,maps, diagrams, drawings etc.
Only photographs, logos and facsimiles of original documents will be accepted under a bitmapgraphic format (inside the “.doc” or “.pdf” file) though in this case they cannot be used in thedocument data processing. The resolution of bitmap files must be 150 dpi or less. Each reportmust correspond to one single “.doc” document or “.pdf” file. Reports transmitted in multiple filesand of different kind will be refused. Contractor is invited to contact the Webmaster before anyfile transfer.
The reports and working papers on the many issues covered by this project should be issuedregularly and discussed with the beneficiaries.
The Contractor is to compose and provide in his Technical Proposal a schedule of separatedeliverables appropriate to specific technical and commercial components of the project. Formaldraft versions are not required, but the contractor should carefully discuss the proposedcontents with, and provide draft extracts upon request to the EC Project Manager in Brussels,
before issuing deliverables.
8. MONITORING AND EVALUATION
8.1 Definit ion of indicators
The contractor shall incorporate monitoring mechanisms for periodic assessment of theprogress of the project work components. Specific performance measures can be selectedbecause they provide valid, useful, practical and comparable measures of progress towardsachieving expected results. Such measures can be quantitative: measures of quantity, includingstatistical statements; or qualitative: judgements and perception derived from subjectiveanalysis of progress made.
Land Transport Safety and SecurityEuropeAid/126786/C/SER/MultiThis Project is funded
by the European Union
Project title: Land Transport Safety and Security Project number: EuropeAid/126786/C/SER Country: Multi
Planning period: June 2009 – October 2011 Prepared on: 01.06.09 EC Consultant: Safege
Project objectives:
Specific objective 1: To strengthen institutional & human resource capacities of national authorities charged with regulating the tr
Specific objective 2: To support the elaboration and enforcement of a legal and regulatory framework for transport safety and se
European standards and best practises
Specific objective 3: To raise awareness of land transport safety and security regulations and standards
No MAIN ACTIVITIES TIME FRAME
2009 2010 2011 PERSO
1 2 3 4 1 2 3 4 1 2 3 4 ECConsultant
3.2
3.2.1
3.2.23.2.3
Component 3:(Continued) Subcomponent 2:Supporting development of NGOs capable of providinghigh quality services linkedto road and LLTS issues
Pilot initiatives to establishNGOs linked to LLTS issuesStudy Tour Networking of public sector and civil society organisationsinvolved in road and LTTS
Land Transport Safety and SecurityEuropeAid/126786/C/SER/MultiThis Project is funded
by the European Union
PLAN OF OPERATIONS FOR THE NEXT PERIOD (Work Programm
Project title: Land Transport Safety and Security Project number: EuropeAid/126786/C/SER Country: Multi
Planning period: June 2009 – August 2009 Prepared on: 01.06.09 EC Consultant: Safege
Project objectives:
Specific objective 1: To strengthen the institutional and human resource capacities of the national authorities charged with regula
Specific objective 2: To support the elaboration and enforcement of a legal and regulatory framework for transport safety and sec
standards and best practises
Specific objective 3: To raise awareness of land transport safety and security regulations and standards
TIME FRAME
2009 (months)
No ACTIVITIES June July Augus t EC Co
Project ManagementOrganisation of Kick-Off ConferenceProject reportingNegotiation of addendaRecruitment of STEsComponent 1:1.1 Functional Review1.2 Legislative Gap AnalysisGeneral Preparation of trainingprogrammeComponent 2:2.1 Support to introduction of TachographGeneral Preparation of trainingprogramme
Component 3:Recruitment of expertDrafting of template for awareness &communications strategy
Land Transport Safety and SecurityEuropeAid/126786/C/SER/MultiThis Project is fundedby the European Union
ProjectPurpose
To strengthen the institutionaland human resource capacitiesof the national authoritiescharged with regulating thetransport safety and securityenvironments
To support the elaboration andenforcement of a legal andregulatory framework for transport safety and securityharmonised with international
and European standards andbest practises
To raise awareness of landtransport safety and securityregulations and standards
Enhanced capacity of nationalauthorities measured in terms of improved infrastructure design,
monitoring and analysis of accidentdata, reduction of fatalities and injuries,
definition and measurement of performance indicators for known
causes of accidents/incidents
Nº of laws, regulations and standardsintroduced which are harmonised with
international/EU regulations andstandards
Greater and more transparentenforcement of laws, regulations and
standards
% reduction in accidents and incidents
Nº of public awareness campaignslaunched by NGOs
EC Regular Reports
IFI reports
Annual Reports of the Ministries of Transport in the Beneficiary Countries
Annual Reports of Road and Rail Agencies in the Beneficiary Countries
