WORLD BANK TECHNICAL PAPER NUMBER 8
Institution Building for Traffic
Management WTP8
Richard Barrett January 1983
Urban Development
Technical Paper Number 7
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WORLD BANK TECHNICAL PAPER NUMBER 8
Institution Building for Traffic
Management
Richard Barrett
Urban Development
Technical Paper Number 7
The World Bank
Washington, D.C., U.S.A.
Copyright e 1983
The International Bank for Reconstruction
and Development / THE WORLD BANK
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First printing: January 1983
Library of Congress Cataloging in Publication Data
Barrett, R., 1945-
Institution building for traffic management.
(Urban Development Department technical paper ; no. 7)
(World Bank technical paper ; #8)
"November 1982."
1. Traffic engineering. 2. Institution building.
I. Title. II. Series: Urban development technical
paper ; 7. III. Series: World Bank technical paper
no. 8.
HE335.B33 1982 388.3'12 82-23727
ISBN 0-8213-0136-5
Institution Building for Traffic Management
Foreword
With very rapid growth in demand for transport, most urban areas
are facing serious traffic problems. In developing countries these problems
are particularly acute because of the lack of resources and the very high cost
of transport infrastructure. It is therefore important that low cost
solutions are pursued and the very best use is made of the facilities
available. One means of achieving this is through proper traffic management.
In most cities, traffic management is the concern of a number of
policy and executive agencies. As a result, there is a pressing need for
close coordination, efficient decision making machinery and enforcement, and
clearly defined responsibilities; the success or failure of traffic management
may well depend on the institutional arrangements.
The purpose of this paper is to provide guidance to World Bank
staff and the authorities in developing countries on the development of
institutional frameworks for successful traffic management. The paper
recognizes the wide differences in the cultural and political attitudes of
countries toward institutional matters and suggests a flexible approach with
procedures that can be adapted to differing circumstances.
In view of the range of urban problems facing developing
countries, "Institution Building for Transport Management" is but one of a
series of papers being prepared by the Urban Development Department to provide
guidance on a number of technical issues in the urban transport sector.
Anthony A. Churchill
Director
Urban Development Department
- ii -
Abstract
This paper explains the fundamental importance of institutional
development and the need for institutional self-sufficiency in order to obtain
the objectives of traffic management.
In addition to suggesting a suitable institutional framework for traffic
management, the paper describes procedures with which to examine agency
responsibilities and performance. It also provides guidelines for the
establishment and the operation of a traffic management unit, for effective
enforcement procedures and for accident data collection.
The paper asserts the need to separate policy-making from technical
responsibilities and to create effective modes of communication among the
various groups that assume them.
The mix and emphasis given to various institutional measures should be
tailored to suit national and local needs and conditions.
- iii -
Table of Contents
Page No.
Chapter I. INTRODUCTION ... . ......... 1
The Importance of Institutional Development. 1
The Importance of Traffic Management 1
Traffic Management Within the Context
of Transport Planning 3
Institutional Framework for Traffic Management ........ 4
Chapter II. INSTITUTION BUILDING ............. 7
Objectives ............. 7
Identification ............. 7
Preparation ............ 11
Appraisal and Loan Negotiation ............ .17
Implementation and Supervision ............ 18
Chapter III. GUIDELINES FOR THE ESTABLISHMENT AND OPERATION OF
A TRAFFIC MANAGEMENT UNIT ....
Basic Functions 20
National Agency . .20
Local Agency 23
Chapter IV. GUIDELINES FOR THE EFFECTIVE ENFORCEMENT OF TRAFFIC
MANAGEMENT AND ACCIDENT DATA COLLECTION . ..31
Introduction 31
Enforcement.. 31
Accident Data Collection .35
Annex I Agency Responsibility Analysis and Performance
Evaluation Techniques .. 37
Annex II Example of the Application of Agency Responsibility
Analysis and Performance Evaluation Techniques....47
Annex III Summary Checklist for Preparing Institutional
Development Components for Traffic Management....... 67
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I. INTRODUCTION
The Importance of Institutional Development
It is now recognized by aid agencies throughout the world that
projects involving the construction of physical facilities, however valuable
in their own right, are less important in the long run than the development of
a sound and viable local "institution". In this context institutional
development encompasses not only the borrowing entity itself, but also the
whole array of government policies that condition the environment in which the
institution operates.
Experience has shown that insufficient attention to the institutional
aspects of a project can lead to problems during its implementation. The
appraisal of the institutional measures of a proposed project should therefore
address questions such as whether the entity is properly organized, whether
its management and staff are adequate for the job, whether local capabilities
are being used effectively, and whether policy or institutional changes are
required outside the entity to achieve project objectives.
Of all aspects of a project, institution building is perhaps the most
difficult to come to grips with. This is in part because its success depends
so much on understanding the cultural environment and the personalities
involved in the institutional environment. Nevertheless, there is a need for
a continuing re-examination of institutional arrangements, an openness to new
ideas, and a willingness to adopt a long-term approach spanning over decates,
rather than years.
In some countries, where such an approach has been fostered by aid
agencies, local institutions themselves are now identifying, preparing and
supervising investment packages without external assistance. Where this is
the case, the aid agency concerned may consider switching from "retail" to
"wholesale" operations through the development of a sector-lending program.
Ultimately the test for institutional development is whether such programs can
be sustained by the country without external support. This paper is concerned
with the ways and means of achieving this degree of institutional self-
sufficiency in the urban transport sector, and more particularly within the
traffic management subsector.
The Importance of Traffic Management
Over the past decade, the importance of traffic management has
significantly increased as it has been recognized that many transport problems
can be resolved without large-scale investment in transport infrastructure.
The approach to planning transport improvements which has evloved is
management-intensive rather than capital-intensive, with one of the principal
objectives being to reduce inefficiencies in the transport system. Traffic
management achieves this through the planning, design, implementation,
maintenance and monitoring of physical and policy measures which promote the
efficient and safe flow of passengers, vehicles and pedestrians. Since
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efficiency in the transport sense is concerned with moving people rather than
vehicles, public transport priority schemes are an important feature of most
comprehensive traffic management improvement programs. The schemes themselves
are low-cost, being principally concerned with minor road works, traffic
control equipment and the introduction of regulations governing the use of the
highway. In many cases, the success of a scheme depends on good inter-agency
coordination and strong enforcement by the police of the accompanying traffic
regulations.
The corner-stone of this approach is the monitoring of traffic data,
not just before-and-after studies, but the continual collection of important
traffic parameters at key locations. The gathering of socio-economic data are
also of significant importance in the forecasting of demands and the planning
of transport projects.
To cope with this fundamental change in approach (from capital-
intensive to management-intensive schemes), municipal and state organizations
have set up departments or units to be responsible for the traffic and
transport planning and operations. At the same time, significant resources
have been poured into traffic and transport research. This effort has led to
the development of two new professional disciplines, namely, traffic
engineering and transport planning. These disciplines themselves have also
evolved so that new areas of expertise have sprung up in these fields.
This switch in emplashs from "capital" solutions to "management"
solutions is gaining momentum throughout the world as the harsh realities of
the current economic climate are being felt. The major obstacle in the
development of this approach is a lack of trained and experienced
professionals. In countries that have strong civil and highway engineering
resources, the professionals need to be trained in traffic engineering and
management skills. In countries where these skills are scarce, they may need
to be "imported" (as an interim measure) and local training courses set up for
graduate engineers and technicians. There is also a need to develop an
institutional environment that fosters the use, development and growth of
traffic management and transport planning skills.
Recognizing these needs, many governments have incorporated traffic
management subcomponents into urban transport projects, some of which have
been supported by the World Bank. Although these subcomponents represent a
small proportion, in cost terms, of transport-related lending, their impact
and rates of return have been high. Also, wherever these subcomponents were
institutionally successful, significantly larger traffic management
improvement programs were undertaken than were originally planned, many
capital-intensive schemes were deferred and coordination between traffic and
transport agencies improved.
The most commonly quoted objectives of traffic management programs
are:
1. to improve transport efficiency and the standard of service of
public transport, particularly for the urban poor;
- 3 -
2. to reduce capital investment in roads by promoting low cost
solutions to traffic and transport problems;
3. to increase the capacity of the urban road network in terms of
the movement of people and goods;
4. to improve the enforcement of traffic regulations;
5. to improve road safety.
In transport projects, these objectives are achieved through the
implementation of a series on inter-related subcomponents covering:
1. development of institutional capacity;
2. implementation of policy measures;
3. improvement of physical facilities;
4. procurement of equipment.
This paper is concerned with the first of these subcomponents.
Transport policy measures, physical improvements and equipment procurement are
discussed in separate papers.
Traffic Management within the Context of Transport Planning
To understand further the importance given to traffic managment in
this paper, it is necessary to view it in the perspective of the overall
transport planning process. There are three basic levels of transport
planning in cities. These are:
1. operational planning - layout of junctions, road marking, sign-
posting, delineation of parking and pedestrian crossings, etc.;
2. tactical planning - development of traffic management schemes,
public transport priority routes, pedestrian areas, etc.;
3. strategic planning - the structure and capacity of the road network
and public transport systems, land-use and transport relationships,
and the balancing of demand with supply.
Traffic management is intimately concerned with the first two of
these levels, namely operational and tactical planning. Just as the
operational plan should be consistent with the tactical plan for a given area
of the city, the tactical plan should fall within the strategic planning
framework for the city as a whole.
Strategic planning in most developing countries has a very poor track
record. The plans that were produced in the early 1970s were often too
- 4 -
ambitious and failed to tackle the most pressing problems which required
modest but real improvements to the existing situation. There was, as a
consequence, a move away from the "big" plan approach to incremental planning
incorporating immediate action and short-term improvement schemes with
emphasis on low-cost measures. This approach achieved some success and
traffic management became one of the principal tools for reducing transport
inefficiencies.
This new approach, however, suffered from a lack of long-term
direction, and failed to provide the necessary framework for capital-intensive
investment schemes. Thus, there is still a need for strategic planning but
with less emphasis on high-cost investment. Other approaches to strategic
transport planning are now being developed and are discussed in other World
Bank publications. Traffic management remains, however, as one of the
principal techniques favored by decision makers, since it can be shown to
provide significant and quick improvements to the transport situation for a
low capital outlay.
Institutional Framework for Traffic Management
One of the main lessons learned from transport projects is that there is
no ideal institutional framework for traffic management. Each country must
develop its own unique solution based on its political and cultural influences
and the available professional and technical resources. For this reason, the
essential features of institutional frameworks are described throughout this
paper in terms of functions and responsibilities rather than a universally
applicable, rigid system.
National and local responsibilities
Traffic management is an on-going process primarily concerned with
the engineering and enforcement of traffic control and safety measures in
urban areas. For these measures t:o be successful on a country-wide basis,
there is a need for a two-level hierarchy of responsibility:
1. a national level responsible for policies, standards,
specifications, laws, and overall monitoring;
2. a local level responsible for planning, design, implementation,
maintenance, local monitoring, regulations and enforcement.
In most large cities, responsibilities for traffic management are
usually vested within the municipal authority, with either the police or a
force of traffic wardens taking responsibility for enforcement. In cities
where this is not the case, government ministries, municipalities or the
police may have total or partial responsibility for any one, or all, aspects
of traffic management. The responsibilities of these agencies may also
overlap leading to duplication of effort on some aspects and lack of action on
others.
At a national level, responsibilities are usually vested in the
government ministry responsible for transport or public works. However, this
is not always the case, and in many countries responsibilities are poorly
defined, fragmented, or suffer from inadequate coordination:L/ for example,
several government ministries may be actively involved in the transport sector
or there may be none. In such a case, the police are usually left to manage
all aspects of traffic control and road safety both at a national and local
level.
Political and technical responsibilities
The most important feature of any institutional framework is a clear
division between policy-making and technical responsibilities, and an
effective mode of communication between the bodies or agencies which assume
them. The responsibility of the decision-makers is to develop policy and
priority frameworks within which the technical agency operates. The
responsibility of the technical agency is to provide the decision-makers with
the information and data necessary for the formulation of policies and
priorities and to implement and enforce the decisions that are made.
In order to function effectively, the political body should have full
legal powers and financial resources to decide on a course of action which the
technical agency follows through to implementation and enforcement. The
technical agency thus becomes the executive arm of the political body. This
inter-relationship is necessary at both a national and local level.
Coordination
If traffic management is to be truly effective in contributing
towards the development of an efficient and safe urban transport system, it
must interface and be coordinated with five other areas of responsibility
which include:
1. strategic planning of urban development;
2. engineering, design and construction of transport
infrastructure;
3. public transport operations;
4. road safety programs;
5. law enforcement.
1/ United Nations, Institution Building for Transport Development in
Developing Countries, 1971.
- 6 -
This statement applies equally to the formulation of both national
and local policies. It is therefore essential that both the national and
local technical agencies be responsive to issues in these areas, as they may
condition or affect the overall performance of urban transport systems. To do
this, it is necessary for the traffic agency to meet frequently with a techni-
cal committee or advisory group which represents the interests of these five
sectors and other important subsectors (see discussion on "Coordination" on
pp. 22 and 24).
The following sections oi this report present a systematic approach
for evaluating the effectiveness of existing institutional frameworks, and
developing institution building components within the context of a transport
project. The procedures described could be applied by the lending agency or
the borrower, but in all cases it is recommended that the results be reviewed
by a technically competent expert in the field. The procedures follow the
World Bank's normal project cycle,-/ namely: identification, preparation,
appraisal, presentation and approval, implementation and supervision, and
evaluation.
1/ W. C. Baum, The Project Cycle, published in Finance and Development,
December 1978.
- 7 -
II. INSTITUTION BUILDING
Objectives
The principal objective of institution building is to provide a
strong institutional and technical base for the formulation and implementation
of policies and projects. This objective is best achieved through
"investment" in institutional and administrative reforms, technical assis-
tance, training and equipment. Such investment, in terms of the overall
project, may represent a small proportion of the total cost, but is often
fundamental to successful project completion and the establishment of a
permanent operations and maintenance capability.
The institutional building component of a traffic management project
will normally include several measures. The mix and emphasis given to each
should be tailored to suit the national and local needs and conditions. The
methods and procedures for identifying, preparing, implementing and
supervising institution building measures are described below.
Identification
The identification and preparation of an urban transport or urban
development project is a joint exercise involving the aid agency, the
government and the borrower.I/ The precise content of the project and the mix
of components will depend on local needs and priorities. The most common
transport problems found in developing cities are traffic congestion,
inadequate public transport facilities, limited access to low-income areas,
inadequate pedestrian facilities, poor coordination between transport, traffic
and planning agencies, high accident rates, poor traffic enforcement and a
lack of firm policies for urban transport management.
Project identification involves developing an outline package of
components which address these problems and falls within an agreed budgetary
framework. The components generally include institutional development,
physical improvements, equipment procurement and policy measures, and address
problems in the areas of traffic management, public transport, enforcement,
road maintenance and road safety. As discussed earlier in Chapter I,
institution building for traffic management can play a key role in helping to
resolve traffic and transport problems through the development of local
technical expertise and improved coordination of urban traffic and transport
agencies.
Sector studies
The first stage in the identification of a transport project or
component, involves carrying out a preliminary assessment of traffic and
transport conditions in the main urban centers, and evaluating the
11 Borrowers may include a member government, a public agency or a private
body.
government's and local agencies' existing technical and institutional
capabilities. This preliminary assessment of urban traffic and transport
conditions usually forms part of the overall economic and sector analyses
which are conducted by some aid agencies. These studies (1) provide a
framework for evaluating national and sectoral policies, (2) assist in setting
up a continuing dialogue between the aid agency and government and
(3) identify potential target cities. In this way it is possible to identify
projects which fit into and support a coherent country development strategy.
Sector studies for urban transport should pay specific attention to:
1. evaluating existing government policies for traffic and
transport in urban areas;
2. determining institutional responsibilities in the transport
sector;
3. evaluating the performance of national and local traffic and
transport agencies;
4. identifying and analyzing expenditure on urban roads over a
five-year period;
5. evaluating investment plans for the next five-year period and
their budget implications;
6. evaluating past and possible future trends in vehicle supply,
fuel supply, traffic flows and road accidents;
7. evaluating transport policies as they relate to urban
development issues;
8. identifying key issues for the development and financing of the
urban transport sector.
Diagnostic studies
The second stage in the project identification process involves
evaluating the performance of:
1. traffic and transport systems in the target cities;
2. traffic and transport agencies in the target cities and in
central government.
These diagnostic studies can be carried out by the borrower with the
assistance of a consultant or advisor, if necessary.
The method and procedures used to evaluate the performance of traffic
and transport systems and public transport operators are described in detail
elsewhere in World Bank publications. A method for evaluating the performance
of those agencies involved in traffic management, public transport operations
and traffic law enforcement is described briefly below, where a two-stage
procedure is used. The first stage involves an Agency Responsibility Analysis
(ARA) covering all aspects of the transport sector and the environment in
which traffic management takes place and provides a global overview of sector
responsibilities. The second stage involves an Agency Performance Evaluations
(APE)!' and can be used to assess the performance of the agencies involved.
Particular attention should also be paid to evaluating the effectiveness of
coordinating agencies if these exist.
These institutional diagnostic studies, together with the results of
the diagnostic studies carried out on the traffic and transport systems and
public transport operators, will enable the borrowers to develop a package of
consistent proposals for the overall improvement of the transport situation.
Typical institutional problems
The main purpose of the Agency Responsibility Analysis and the Agency
Performance Evaluation is to conduct a systematic search for institutional
problems so that a project can be prepared which will plug gaps and strengthen
weaknesses in the institutional framework at both the national and local
level. The most commonly found problems are: (1) a lack of experienced local
professinals in the fields of traffic engineering, transport planning and
transport economics; (2) a lack of understanding of traffic management
concepts; (3) poor coordination in planning and implementing traffic and
transport improvement measures; (4) inadequate maintenance of transport
infrastructure and equipment; and (5) poor enforcement of traffic laws and
regulations.
Improving local professional capabilities. The lack of trained professionals
in the fields of traffic engineering, transport planning and transport
economics is principally due to the fact that training in these areas is not
offered at the local universities and the cost of training outside the country
is prohibitively high. The situation could be improved in many countries
through short courses for graduates and professional engineers that normally
would be provided within the framework of an existing university civil
engineering department. The establishment of permanent courses of this type
is a long-term measure which generally bears fruit after a four to five-year
period. In the meantime, on-the-job training and locally organized workshops
should be considered as one solution.
Understanding traffic management concepts. Traffic management and transport
planning can provide significant savings in capital investment in transport
1/ A brief description of ARA and APE procedures is given in Annex 1. A case
study which makes use of these procedures is described in Annex II.
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infrastructure and road programs. To achieve these savings, the tools and
techniques available to the traffic engineer and the transport planner need to
be understood and practiced. In many countries, decision-makers are
unfamiliar with these concepts and need to be shown the benefits that can be
achieved by switching resources and emphasis from construction-intensive
schemes to management-intensive schemes. One of the most effective techniques
for doing this is to arrange a study tour of other countries for a group of
key decision makers and technical officers so that they can see at first hand
how traffic management concepts work and are implemented.
Improving traffic and transport coordination. Traffic planning and transport
operations in the urban context require strong control and effective
coordination if they are to contribute towards the development of an efficient
and safe urban transport system. In many countries, a lack of understanding
of the inter-agency relationships and linkages that are necessary, together
with poorly defined and fragmented responsibilities, have resulted in the
inefficient use of road space and transport resources. The establishment of
both a decision-making committee (with overall responsibility for urban
transport) and a technical committee is a necessary pre-requisite for improved
coordination.
Improving maintenance. Establishing good road maintenance practices and
schemes for regular inspection and repair of traffic signals and other control
equipment is the first basic requirement for an efficient transport system.
Sophisticated traffic improvement measures will be of no avail if traffic
capacity is limited by poor road surface conditions and blocked drains
(especially important in regions where large or heavy rainfall is
encountered). It is therefore essential that physical improvements be
accompanied by improved maintenance. This may involve expanding maintenance
units, providing equipment and training staff.
Improving enforcement. Since many traffic management measures depend on
regulations governing the use of road space, they will only be successful if
the regulations are effectively enforced. This requires a strong enforcement
agency. Where the importance of traffic enforcement is not adequately
recognized, it will be necessary to introduce training programs and provide
equipment to assist the police in traffic enforcement duties.II
The typical problems outlined above may be found to some degree in
almost all large cities in less developed countries. Unfortunately there is
no single remedy for these problems. Each situation must be evaluated
independently and a formula developed which takes into account differences in
institutional heritage, and the technical and financial resources available to
the country.
1/ See Chapter IV for guidelines for effective enforcement.
- 11 -
Large and small countries
In many large countries, the coordination of urban transport
policies, standards and regulations at the national and local levels is
complicated by the existence of additional administrative bodies at the state
level, which generally assume some of the same responsibilities. As a result,
technical resources are often duplicated and responsibilities fragmented.
Also, bureaucratic procedures are often ponderous, complex and time
consuming. Such problems can only be remedied by concentrating resources and
clarifying the responsibilities of national, state and local agencies. In
this respect it is vitally important to establish clear-cut lines of
responsibility between political agencies and technical agencies at all
levels.
In very small countries, there is also a need to concentrate
resources. Such countries simply cannot afford to staff both national and
local agencies, and in any case to do so would probably lead to unnecessary
duplication of effort. Thus the agency responsible for traffic management
should fulfill both national and local functions. This agency will need to
play a key coordinating role and will require careful structuring and internal
organization if it is to tackle the problems of producing national standards
effectively and at the same time deal with the day-to-day problems of traffic
operations.
In some countries, the larger metropolitan areas are made up of
numerous municipal authorities, each of which has responsibilities for
planning, highways and traffic. In such cities, improving urban transport
efficiency can best be achieved if the planning, implementing, maintaining and
monitoring of traffic and transport improvement measures are done on a
metropolitan scale. This situation requires the creation of a regional
traffic management agency and a regional political body to which the former
can be responsible. To be effective, the political body should also be the
strategic planning authority, the highway authority (for the primary and
secondary road network)I/ and the enforcement authority, and should have funds
available to exercise its powers.
Preparation
Approach
Unlike physical improvement measures which have a specific locational
impact and can be completed within the time frame of a project, institutional
development measures have much broader impacts which continue well after a
project is completed. Therefore, the institutional development component
should be designed not only as short-term measure to assist in the
implementation of the physical component, but also as part of a long-term, on-
going evolutionary process.
1/ Primary roads are defined as the elements of the road network which form
part of the national road hierarchy and secondary roads as the road
elements which act as major urban distributors and link roads.
- 12 -
Some of the more important lessons that have been learned with regard
to the preparation of institutional development components for trafficl
management are that:
1. institutional development is an on-going process from which
benefits increase substantially over time;
2. developing local capabilities in traffic management, transport
planning and transport economics is a slow process requiring
permanent local training opportunities.
Thus the greatest benefits will be achieved if the first project lays
out the foundations for long-term institutional development and subsequent
projects build on its achievements, gradually expanding the capabilities of
local agencies to plan, design, manage, maintain and monitor traffic and
transport systems completely. Also, national agencies should be able to set
policies and standards, and prepare guidelines for the appraisal, control and
coordination of urban transport systems.
Objectives
The principal objectives of the project preparation stage are to:
1. clearly establish the authorities' overall goals and detailed
objectives for each subcomponent of the project;
2. describe in detail how these objectives will be achieved both
from a managerial and technical standpoint;
3. set the time frame involved in achieving the objectives;
4. detail the cost involved.
The principal methods used to achieve institutional development
objectives are institutional and administrative reforms, technical assistance,
training and equipment procurement.
Poor preparation of projects has been cited as one of the principal
contributory factors to slow project start-ups and implementation delays.
Therefore each of the subcomponents should be carefully prepared. The
following subsections of the paper describe the approach that should be
adopted in preparing each of the subcomponents listed above.1/
1/ To assist those involved in the preparation of institutional development
components, a summary checklist of key decisions is attached as Annex III.
- 13 -
Institutional and administrative reform
Caution should be exercised in proposing major institutional changes
and administrative reforms, especially if they do not meet with widespread
approval. Where these changes are critical to the implementation of the
project, they should be enacted as soon as possible, preferably before the
project gets under way. The most difficult issues of this nature which have
to be addressed in projects are: (1) the question of creating a project
officer or integrating project responsibilities within existing agencies;
(2) in the latter case, deciding on a home for the traffic management agency;
(3) making changes in the assignment of responsibilities for traffic
management between police and civilian agencies.
Project office or integrated agency. As far as traffic management projects
are concerned, there are very few benefits to be obtained by creating a
special project office. The nature of the work is such that:
(1) it is on-going and long-term and therefore requires a permanent
local establishment;
(2) it depends on strong inter-agency coordination which can be
best achieved by building on existing institutions and
linkages.
It is often the case that the traffic management agency, once it is
created, will be managing funds which may come from different sources. Thus,
a fully integrated agency would have much greater flexibility in this
situation than a project agency strongly dependent on a single financing
agency.
A home for the traffic management agency. In countries with technically
strong municipal authorities and well evolved ministerial agencies, the choice
of a home for the national and local level traffic management agencies is
clear cut. The agencies are generally integrated into an operational
department which is responsible for the planning and maintenance of the road
network and the making of regulations governing its usage. At the local
level, this is generally the public works or city engineer's department. At
the national level, it is the ministry of transport, ministry of works, or a
minister involved with roads and road traffic.
In countries with less well developed municipal authorities and no
previous experience with traffic management, a national traffic management
agency would initially need to be created which might later evolve as outlined
(under "Agency Development") on page 23. The choice of a home for this agency
may be more diEficult since it will depend to a large extent on political
pressures within the government and the influence of local personalities.
However, any attempt to locate the agency in a non-operational ministerial
department should be resisted, since traffic management by definition is
concerned not only with planning but with constructing and maintaining roads
and equipment. Ideally the agency should be integrated within a department of
the ministry responsible for highway planning, design, construction and
- 14 -
maintenance. If this cannot be achieved, then a compromise may need to be
reached. The basic factors that need to be considered in reaching a
compromise solution are: (1) the role of the police, (2) which ministry has
responsibility for main roads and (3) which ministry is responsible for
funding local authority plans.
Civilian/police responsibilities. Of all the institutional issues to be
addressed, assigning responsibilities between civilian and police agencies
requires the greatest caution. Tc, fully understand the nature of the problem,
responsibility for traffic management must be viewed in an historical and
evolutionary context. The pattern is most easily seen in developed countries.
Before the birth of traffic management in the late 1950s, the
standard solution to traffic problems was to build more roads. Thus there
were the civil engineers on the one hand, building and maintaining roads, and
the police on the other, enforcing traffic laws and regulations. As it was
recognized that the demands of the growing vehicle population could not be
satisfied by more road construction because of environmental and financial
constraints, the art of traffic management began to take root. Initially this
involved the making of regulations to create one-way streets and ban parking
along critical sections of roads. These measures were seen as a natural
extension of police duties since they basically involved the enforcement of
traffic regulations. Also, the impetus to carry out these changes often came
through the police whose duty it was to promote the safe and smooth flow of
traffic.
As traffic improvement schemes became more complex, minor road works
and traffic signal controls were necessary and consequently the assistance of
municipal engineers was sought. It was quickly recognized that municipal
engineering departments were better equipped to design, implement and maintain
traffic management schemes than the police, but that the police still had an
important role to play in planning and enforcement. Thus, "surplus" civil
engineers began to take over and expand the domain of traffic engineering, and
responsibilities for traffic management were assigned to municipal agencies.
In many countries this evolutionary process is either still in its
infancy or is not yet fully completed. Where there is no local civilian
traffic management agency, the police rightfully regard traffic management as
their own domain and are often loath to relinquish any responsibilities.
Transferring the design, implementation and maintenance functions to a
civilian agency is seen by the higher ranks as a loss of power or a comment on
their own effectiveness. It is normal, therefore, for the police to resist
any changes. It will also be pointed out by the police that splitting up the
responsibilities weakens the system, especially when the new civilian traffic
management agency is inexperienced.. These arguments, however, should not be
taken as a reason for not setting up a civilian agency, nor should its
creation be seen as a reason for making sweeping changes in the assignment of
responsibilities. As in all situations of this nature, a middle path should
be sought which furthers the evolutionary process but does not alienate either
the police or the civilian agency. Indeed, the key to successful traffic
management depends on the complete cooperation between these two agencies and
- 15 -
therefore everything should be done to bring them closer together at all
levels. One way of doing this is to introduce joint training programs so that
police and civilian agencies can achieve a closer working relationship.
Technical Assistance
Technical assistance needs should be identified as early as possible
in the project cycle and advisors carefully selected. Ideally this should
take place at project identification so that the same principal advisors can
be used for project preparation and implementation. Initial contracts should
start at project preparation (if the advisors have not been used in project
identification) and continue through to the beginning of project implementa-
tion. This will help ensure continuity of approach; also that project
preparation work will continue after project appraisal and the start-up of
implementation. (One of the principal causes of project delays oa traffic
management components has been slow start-ups due to a lack of continutity and
loss of project momentum within the borrowers' agencies after project
preparation and appraisal).
One of the main issues which will need to be addressed at this stage
is whether the technical assistance should be carried out by a firm of
consultants or by independent advisors. Experience has shown that both
solutions can be effective but that in certain circumstances one or the other
solution should be avoided. The following guidelines may prove useful:
1. when various disciplines are required, (e.g. traffic engineers,
planners, economists, etc.), it is best to use a firm;
2. when just one professional is needed an independent advisor may
be hired;
3. in almost all situations, large and small teams composed of
individual advisors should be carefully selected. The team
should have a responsible and effective leader who, if it is
possible, should pick the others. The principal problem with
groups of this kind is that there is no corporate
responsibility;
4. the principal advantage of a consulting firm is that
individuals can be easily replaced if they do not perform
adequately;
5. individual advisors can be very useful to borrowers in two
ways: (a) in acting as senior advisors to assist the government
in coordinating the project, to participate in certain
components and to review and coordinate the work of the
consultant firms; and (b) to provide high level assistance on a
short-term or periodic basis when the national or local
agencies are carrying out the project without long-term
technical assistance.
- 16 -
All advisors should have considerable experience of working in
developing countries. In some situations it may be possible to arrange for
advisors to be sent from neighboring countries which already have successfully
implemented transport projects.
Training
A training needs assessment should be prepared using the Agency
Performance Evaluation (APE) procedures. The proposed program should respond
to both short and long-term needs and involve politicians, decision makers,
middle management engineers, junior engineers, technicians and police
enforcement officers.
The long-term program should be principally aimed at developing
graduate and training courses for civil and municipal engineers in the fields
of traffic engineering, transport planning and transport economics. Usually
such courses can be designed as an extension of local university civil
engineering courses. In countries which either do not offer or cannot afford
such courses, training at post-graduate schools in other countries should be
considered as an alternative approach. The training of individuals in this
way should be spread out over a period of years so that local on-the-job
training can also be offered and the project does not sufffer from the absence
of several individuals at the same time. The importance of on-the-job
training cannot be over-emphasized, not only for junior staff but also for
middle and senior management.
Short-term training and education programs should begin as early as
possible in the project cycle. Technical visits and training programs in
other countries assist in educating politicians and decision makers and
getting political support for the project. The financing of such visits
should be organized and if necessary, external aid sought for them.
In most countries it will be beneficial to offer local training to
middle management, junior engineers and technicians. This is best organized
through consulting firms or individuals providing technical assistance.
Courses or workshops should cover pertinent and practical subjects and be
relatively short so as not to interrupt the flow of project work. The courses
should be spread over a long time period and involve the use of detailed
printed notes which can be referred to by the students at a later date.
Responsible persons within the police traffic agency should also attend these
courses. In order for the courses to be effective, staff attending them
should agree to remain in their posts for several years.
Equipment
The equipment needed is largely for the following:
1. educational and administrative purposes;
2. carrying out surveys and monitoring traffic flows;
- 17 -
3. assisting in carrying out studies;
4. assisting police with enforcement duties.
Educational equipment includes such items as one would normally find
in a classroom: overhead and slide projectors (particularly useful in
training as well as presenting plans and proposals to groups and committees),
filing cabinets, drawing equipment and (access to) copying facilities.
Survey equipment such as automatic traffic counters, stop watches and
hand tallys are basic for every traffic management agency and should be
provided in the project if they are not locally available. Care should be
taken to make sure that the traffic counters are maintained in good repair.
Computational aids to assist in carrying out traffic studies are also
helpful. Of particular utility are microcomputers which can be used to make
design calculations, store traffic and accident data, analyze the results of
surveys and make the calculations in the land use/transport studies. Computer
experts are not required to operate these small pieces of equipment. Rather,
they are basically computational aids which can be used by engineers and
technicians in their day-to-day work. When microcomputers are provided as
part of a project, software should also be included and basic training should
be given on the use of these programs and the operation of the machines. It
is also important to ensure that the machines can be locally maintained.
Equipment to assist the traffic police with enforcement of traffic
laws and regulations should normally only be provided if it forms part of an
overall traffic enforcement improvement program. Such equipment might include
tow trucks, vehicle immobilizers, speed detectors, portable axle weighing
machines, patrol vehicles and radio equipment. Equipment needs of this type
are best identified by undertaking a detailed analysis of the police
enforcement agency following APE techniques. The police component should also
include, as necessary, internal organizational changes and training and
technical assistance in traffic enforcement and engineering.
Appraisal and Loan Negotiation
The principal objectives of the appraisal stage are:
1. to ensure the project is feasible and lies within the
capabilities of the agencies which will have responsibility
for project coordination and implementation;
2. to ensure that necessary legislation will be enacted;
3. to ensure that the project preparation has been adequately
carried out, and that it meets the government's and the aid
agency's objectives;
- 18 -
4. to ensure that the project is economically justifiable;
5. to prepare covenants governing loan effectiveness and
disbursement control;
6. to set deadlines and targets for each subcomponent so that
progress can be mlonitored;
7. to ensure that the project monitoring and supervision
arrangements are adequate.
If the project has been well prepared and the aid agency has been
closely involved at all stages of the project cycle, then no particular
problems should be encountered at appraisal. The aid agency may seek out
contractual agreements to ensure that necessary institutional changes and
reforms are enacted by certain dates and that other important deadlines and
targets are achieved.
Implementation and Supervision
It is the borrower's and the aid agency's responsibility to ensure
that the project deadlines and targets are met. In terms of the institutional
development components, the performance criteria used for monitoring progress
will principally be concerned with:
1. staffing of the target agencies both in terms of numbers and
qualifications of staff;
2. timetables for institutional and administrative reforms;
3. timetables for technical assistance;
4. staff training and development programs;
5. equipment procurement and maintenance;
6. conditions of employment;
7. performance of target agencies within their areas of
responsibility.
In effect, each mission is required to review and continually update
the Agency Performance Evaluation which was originally carried out during
project identification. This involves keeping track of agency expansion and
training programs to ensure that the targets set at appraisal are achieved,
and that procurement is carried out in accordance with the guidelines
established in the loan agreement (designed to guarantee that the requisite
goods and works are procured in the most efficient and economical manner.
- 19 -
In most cases this objective can best be achieved through
international competitive bidding open to qualified contractors or
manufacturers. To foster the development of local capabilities, a degree of
preference is usually accorded to domestic suppliers and, under certain
conditions, to domestic contractors. Local competitive bidding, or even
construction by the borrower's own forces, may be more economical and
efficient in some projects where the works are too small for international
tendering to be appropriate.
It should be noted that special attention and extra resources will
need to be devoted to public relations and monitoring during the first few
weeks that each traffic management component is being implemented. This will
be the responsibility of the agency's monitoring unit and the traffic police.
- 20 -
III. GUIDELINES FOR THE ESTABLISHMENT AND OPERATION
OF A TRAFFIC MANAGEMENT UNIT
Basic Functions
At its most basic level, traffic management is concerned with the
management of road resources. Thus the most essential technical functions of
traffic management agencies at a local level are to maintain the traffic
system in good working order, regulate and monitor the use of road space and
enforce traffic regulations. There will be little advantage in undertaking a
program of traffic improvement measures until these basic functions and road
maintenance can be adequately performed by local agencies. Without good road
maintenance, traffic improvement measures will be severely handicapped.
Just as traffic management requires the performance of basic
functions at a local level it also requires the performance of basic functions
at a national level. The most essential of these is to prepare national
standards and specifications for traffic engineering design, traffic signs and
control devices. Not until standaLrds and specifications have been set and
basic local agency capabilities are in place, can the full benefits of traffic
management schemes be achieved.
This section of the paper describes how the national and local
agencies responsible for traffic management functions should be established
and offers guidelines on the role they should play in the development and
coordination of traffic and transport policies and plans. The description
given is based on the arrangements which would be appropriate for a medium-
sized country with more than one major urban area. The division of
responsibilities could be different in very large countries and very small
countries. For example, in very large countries, with both national and state
governments, some of the national agency responsibilities may be taken up by
the state. If municipal authorities are weak, local responsibilities should
also be assumed by the state. The greatest dangers in this type of situation
are duplicating efforts and fragmenting responsibilities. The ultimate goal
should be to develop a local agency within the municipal authority, leaving
the state to play a consultative and regional coordination role.
In very small countries, it would be usual for both the national and
local level responsibilities to be vested in a single traffic management
agency located within the ministry of works or transport. Such an arrangement
would enable the best use to be made of limited technical resources. The
agency should act as a technical coordination unit at national and local
levels.
National Agency
Responsibilities
The principal responsibilities of a national traffic management
agency are:
- 21 -
1. to assist in the development and implementation of policies
for urban transport;
2. to prepare national standards and specifications and monitor
and update them as and when necessary;
3. to advise local traffic management agencies on the methods and
procedures to be followed in the planning, design and
implementation of traffic management schemes and to assist
municipalities without local agencies to implement such
schemes;
4. to assist in the establishment of short and long-term
permanent training courses in traffic engineering and
associated subjects.
The national level agency should also be responsible for allocation
of government grants or aid agency loans to municipalities for the implemen-
tation of traffic and transport plans. In this role it will be called upon to
coordinate the processes of project identification and preparation, and carry
out appraisals of potential projects. After appraisal, the national agency
should assume responsibility for supervision and evaluation of projects. This
will involve ensuring that implementation targets are met and supervising the
collection of "before and after" data so that post-appraisal studies to
evaluate the project impacts can be carried out. When a national agency is
able to perform all these functions with minimal recourse to external
assistance, then it can be said to have achieved "institutional self-
sufficiency". At this stage of development it would be normal for aid
agencies to consider giving assistance through a sector lending program.
Coordination
To be effective, the national traffic management agency will need to
work within a policy framework. The development of an urban transport policy
framework will involve several government ministries. The coordination of the
policies of -these different ministries should be achieved through the
formation of a Transport Advisory Group (TAG) or committee which is chaired by
a highly placed government official from the most appropriate ministry.
Normally this will either be the ministry of local government or the ministry
of transport. Members of the Transport Advisory Group should include
representatives from ministerial departments responsible for urban planning,
vehicle licensing and regulations, public transport undertakings, national
transport undertakings, national police, national road safety organizations,
fuel and vehilce imports, public information, transport research, and urban
transport finance and taxes.
The national traffic management agency will normally be the principal
executive arm of the arm of the Transport Advisory Group providing there is no
government agency responsible for urban transport planning. If such an agency
exists, both will have executive functions and will need to work in close
- 22 -
coordination. The traffic management agency should be responsible for
operational and tactical planning involving short-term plans and the transport
planning agency should be responsible for strategic long-term planning. Urban
transport planning should normally come under the ministry responsible for the
preparation and appraisal of urban master plans.
The relationship of the traffic management agency to the Transport
Advisory Group will involve the agency in carrying out and/or supervising
surveys and studies aimed at the formulation of urban transport policies.
Once these policies have been decided, the agency will be involved in
developing programs which implement them and monitoring their results.
Agency development
In countries which do not have an institutional base for traffic
management and transport planning, the institutional development process
normally starts with the creation of a national traffic management agency
within a government ministry which assumes both national and local
responsibilities. As the agency gains experience through implementing traffic
improvement schemes in the worst congested areas and corridors of the
principal cities, it expands and reaches a point where the national and local
responsibilities can be split. At this point in time, the day-to-day
management of the traffic systems in the principal cities can be handed over
to the municipal authorities leaving the national agency to continue its work
in developing standards and specifications, supervising grants and loans and
assisting other smaller local authLorities with the preparation and
implementation of traffic and transport plans. As this process continues, the
municipal authorities in the secondary cities also build up experience and the
national agency becomes more and more of a plan review, appraisal and
supervisory body.
Organization of the national agency
The basic structure of the national traffic management agency should
include five divisions with responsibilities for the following:
1. Education: disseminating information, giving advice to local
agencies and municipal authorities and promoting education in
traffic engineering, transport planning and economics;
2. Standards: developing traffic engineering design standards and
specifications governing the use of traffic signs, carriageway
markings, traffic signals and other control devices;
3. Regulations: developing and enacting regulations to govern the
use of road space and vehicles;
4. Project Review and Appraisal: assisting municipalities in the
identification and appraisal of projects, identifying priorities
and supervising and evaluating investment programs;
- 23 -
5. Research: directing and coordinating research and policy
studies involving all aspects of urban transport, and developing
methodologies and procedures for traffic and transport planning.
Staffing levels should be commensurate with the scope of the agency's
duties and the number and the capability of the local agencies it is asked to
supervise. Chief officers in the agency should include engineers, planners,
economists and statisticians.
Local Agency
Responsibilities
The principal responsibilities of a local traffic management agency
are:
1. to assist in the development and implementation of local
transport policies;
2. to plan, design and implement public transport and general
traffic improvement schemes;
3. to draw up and implement traffic regulations concerning the
utilization of road space by different vehicle types and
pedestrians;
4. to maintain traffic signs, carriageway markings and traffic
control devices;
5. to monitor vehicle and pedestrian movements;
6. to develop traffic schemes of a temporary or experimental
nature;
7. to coordinate the planning and design of traffic and transport
plans.
Such an agency is usually referred to as a Traffic Management Unit
although its scope and involvement often exceeds the boundaries of traffic
engineering and operations. The Traffic Management Unit is normally located
within the city engineer's office or public works department of a municipal
authority. In countries where trained professionals are in short supply and
municipal technical agencies are weak, the Traffic Management Unit should
initially be located within the department of an appropriate ministry.
Ultimately the local level responsibilities of this agency should be
transferred to the municipal authority.
- 24 -
Coordination
The major advantage in locating the Traffic Management Unit within
the technical services department of the municipality is that it can readily
coordinate with the agencies responsible for urban development. The
organizational structure of most large municipalities will normally include
departments responsible for urban planning, infrastructure design and
maintenance, and public transport planning, control and regulation. In very
large cities, responsibilities for urban public transport may be assigned to a
Passenger Transport Authority (PTA). The Traffic Management Unit will be
closely concerned with the work of all these departments, including the PTA,
and will also have a role to play in directing overall urban planning efforts
through the systematic monitoring of traffic data and forecasting of travel
demands. Coordination with these dlepartments will be necessary for the
implementation of transport policies and traffic improvement schemes. The
three levels of coordination in which the Traffic Management Unit will be
involved include:
1. Primary Level: coordination with agencies responsible for the
planning and regulation of urban development and public
transport, and the construction and maintenance of transport
infrastructure;
2. Secondary Level: coordination with agencies responsible for the
operation of transport systems and emergency services, the
enforcement of regulations and liaison with various user groups;
3. Tertiary Level: coordination with other agencies physically or
operationally affected by the proposals such as public utility
agencies and private agencies or individuals.
At the primary level, coordination (by the Traffic Management Unit)
will involve ensuring that any proposed improvements are compatible with
strategic planning and transport policies. In cities where planning, road
construction and public transport are managed by government or delegated to
private agencies, regular meetings should be held with the agencies involved
to ensure proper coordination of traffic and transport facilities.
At a more detailed level the Traffic Management Unit will need to:
1. assist the planning department in the vetting of planning
applications to ensure that the provision of access, parking,
public transport and pedestrian facilities are adequately
designed and in accordance with municipal policies;
2. link with the public transport planning and control department
to ensure that routes and facilities provided for public
transport users are conveniently located and designed to
acceptable standards;
- 25 -
3. link with other municipal departments to ensure that the
principal road networks is well maintained, that junctions and
important pedestrian crossing places are adequately
illuminated and that drains are cleared before monsoon or
heavy rains so that roads are not flooded.
Other municipal concerns which can have an impact on traffic
proposals are the location of markets, the control of street hawkers and the
paving of access roads in low-income areas. The paving program should take
account not only of general traffic needs, but also of public transport
routing patterns and the need for solid waste disposal and water distribution,
where this is done by vehicles. The Traffic Management Unit should be
involved in the planning and coordination of these activities.
Coordination at the secondary level is principally concerned with
agencies responsible for:
1. the operation of public transport services (trains, trams,
buses, taxis, para-transit, etc.);
2. the enforcement of traffic regulations;L/
3. the operation of fire and ambulance services;
4. bringing together and consulting with formally organized user
groups.
Coordinationi meetings at this level should be held early in the
planning stage of a proposed scheme and at all significant stages of
advancement in the planning and design process. Meetings should be frequent
to enable staff to evaluate complaints and suggestions which have been put
forward concerning traffic and transport problems. Such a group is generally
referred to as a Traffic and Road Safety Committee and should act as an
advisory body to the Traffic Management Unit.
The third level of coordination is principally concerned with
consultation with other agencies and private individuals that might be
affected by the implementation of traffic improvement measures. The public
utility agencies should be formally consulted and site visits held if
necessary. The owners and/or lessees of all properties significantly affected
by traffic improvement schemes should also be approached to ensure that their
access is not impeded or that alternative arrangements can be provided.
1/ Coordination with the police can generally be improved by the secondment
of a police officer to work in the Traffic Management Unit. This will
also be a valuable training experience.
- 26 -
Political Linkages
To be effective, the Traffic Management Unit should:
1. be directed by a local political authority. In most cases
this will be the city or municipal council, or in large
cities, a sub-committee of the council concerned with urban
transport, traffic and road safety;
2. have access to regular funds for the performance of its
maintenance, monitoring and on-going operational functions,
and to earmarked funds for the implementation of major traffic
and public transport improvement schemes, junction
improvements, and remedial measures at accident blackspot
locations.
The Traffic Mangement Unit will only be effective if these two
conditions are met and its work program has the full support of the municipal
council. To enlist this support, it will generally be necessary to
demonstrate to local politicians, particularly the mayor or chairman of the
traffic sub-committee, the benefits to be gained from traffic management and
the need for strong coordination of all urban transport functions and
services. The understanding of the mayor will be particularly necessary when
new measures are implemented. Public reaction to change can be vociferous and
the Unit will need to have the full support of the mayor during the first few
weeks after new traffic schemes are introduced and until the new order is
accepted and minor difficulties are ironed out. Thus, the mayor should be
fully briefed prior to the implementation of a new scheme and the media should
be given advance information so that the general public are aware of the
proposed changes and the need for them.
Funding of the Traffic Management Unit will generally be the
responsibility of the municipal council or the government. The municipality
may be able to supplement the cost of the Traffic Management Unit and its
schemes through parking charges, local vehicle licenses or other transport
related charges and taxes.
Organization of a traffic management unit
The typical organizational structure of a Traffic Management Unit
involves seven sections:
1. a maintenance section responsible for traffic signs,
carriageway markings and other municipal traffic control
devices;
2. a monitoring section responsible for conducting surveys,
carrying out traffic counts and analyzing traffic and accident
data;
- 27 -
3. a parking section responsible for the administration and
supervision of on and off-street parking;
4. a traffic signal section responsible for the design,
implementation and maintenance of traffic control equipment;
5. a design section responsible for the planning and
implementation of short-term traffic improvement measures and
remedial action at accident blackspots;
6. a planning section responsible for conducting strategic
transport studies and evaluating alternative proposals;
7. a research section responsible for policy studies and the
conceptual planning of improvement measures and schemes of an
experimental nature.
The maintenance, monitoring, parking and traffic signal, sections are
essentially concerned with day-to-day operations and should come under the
control of the same senior technical officer. The planning, design and
research sections can also be grouped since they are essentially concerned
with the development and evaluation of detailed policies and plans. The
senior technical officers in charge of these two groups should report directly
to the head of the Traffic Management Unit, who in turn should report to the
city engineer or director of public works. The responsibilities and
organization of the seven sections are briefly described below.
It should be noted, however, that the development of a unit of this
size and complexity cansot be achieved overnight and takes a considerable
period to create.
Maintenance section. The maintenance section will require workshops
and stores where materials can be kept and damaged equipment can be
repaired. Vehicles and trailers will also be needed to move equipment to
various sites. The principal activities of the section should include:
1. the manufacture,I/ painting, erection and cleaning of traffic
signs and bollards;
2. the laying of carriageway markings and maintaining them in good
order;
3. the erection and maintenance of parking meters;
4. the maintenance of bus terminals, stops and shelters if these
are provided by the municipality.
1/ It may be more appropriate in some instances to subcontract out the
pressing of steel into the shapes of traffic signs.
- 28 -
Monitoring section. This section will need survey equipment such as
automatic traffic counters, stop watches, hand tallys, etc., and a team of
enumerators who are prepared to work shifts, so that 24-hour, 16-hour and 12-
hour counts and surveys can be carried out. Computational aids and good
filing facilities will also be essential. The principal activities of the
section should include:
1. collection and analysis of traffic volumes and classified
vehicle counts at permanent and special counting stations;
2. collection and analysis of vehicle turning movement data at
intersections;
3. collection and analysis of data on pedestrian flows at specific
locations;
4. collection and ana:Lysis of data on public transport and
passenger movements;
5. organization and filing of accident data;
6. carrying out of origin/destination surveys;
7. carrying out of public transport user surveys;
8. collection and analysis of data for "before-and-after" studies;
9. carrying out of surveys which may be requested by other
sections of the Traffic Management Unit;
10. special monitoring of traffic management components in the
first few weeks of their implementation.
Parking section. The parking section will be principally concerned
with the day-to-day administration and management of municipally operated on
and off-street parking areas. The tools and techniques involved will range
from very simple (for example, parking lot attendants) to sophisitcated
equipment like parking meters, automatic parking gates and ticket machines
which ideally should be maintained by the maintenance section. White or
colored lines, designating parking bays or areas, should also be maintained by
the maintenance section. Parking policies will normally be developed by the
planning or research sections.
- 29 -
Traffic signal section. The traffic signal section will be
responsible for the design, specification, installation and maintenancel/ of
traffic control devices. It will also be responsible for developing a traffic
control system which is in accordance with municipal policies. This may
involve special signaling, (to give priority to public transport vehicles, to
divert traffic away from congested areas), and area traffic control or
restraint schemes.
Design section. The design section will be concerned with the
planning and design of traffic and transport improvement measures. As such it
will be involved in all levels of coordination. The principal activities of
the section should be:
1. the planning, design and implementation of permanent traffic
and public transport improvement measures;
2. the planning, design and implementation of temporary and
experimental traffic measures;
3. the preparation of traffic regulations associated with
improvement measures and parking schemes;
4. the analysis of accident data and design and implementation of
remedial measures for accident blackspots.
Planning section. The planning section will be closely involved in
defining and evaluating medium to long-term transport options for the city.
This work will necessitate close working relationships with the urban planning
department of the municipal authority. The resulting plans should provide a
framework for future transport investment and assist in developing a rolling
program of traffic and transport improvement measures. This program will
define the work of the design section and indicate priorities for major road
construction and improvement. To this end it will be necessary for the
planning section to carry out feasibility studies involving economic,
financial, environmental and social evaluations of the proposed projects.
After projects have been completed, the impacts should be monitored and
"before-and-after" studies carried out. A micro or minicomputer together with
software for carrying out land use/transport studies would greatly assist the
planning section in this work, particularly with respect to traffic
forecasting and economic evaluations.
11 It is unusual for a municipal agency to have the technical skills
necessary to fully maintain traffic signal systems. This is best done by
the suppliers or their agents under an annual maintenance contract which
is supervised by the Traffic Management Unit. The municipality, however,
will sometimes take on responsibility for changing light bulbs and
cleaning signals.
- 30 -
Research section. The research section will be responsible for
carrying out an assortment of studies aimed at formulating transport
policies. These might include studies to evaluate the benefits of staggering
working hours or traffic restraint schemes, etc. The research section will
also collect data and information on innovative traffic and transport
solutions and evaluate their possible application within the local context.
This section should work in close collaboration with planning and design
sections and with the monitoring section in data collection exercises.
- 31 -
IV. GUIDELINES FOR THE EFFECTIVE ENFORCEMENT OF TRAFFIC
MANAGEMENT AND FOR ACCIDENT DATA COLLECTION
Introduction
One of the basic objectives of all traffic improvement measures is to
provide for the safe and efficient flow of traffic and pedestrians. Physical
measures on their own cannot always guarantee that this objective is met; thus
regulations are required to indicate to drivers and pedestrians how they
should or should not behave. Enforcement is concerned with making sure these
regulations are adhered to at all times and in most countries comes under the
responsibility of the police. The police are also responsible for the
recording of accident data. When this is systemmatically carried out, the
information can be used effectively in the design of remedial measures for
accident blackspot locations and road safety campaigns. Enforcement is itself
a very crucial factor in many road safety counter-measures. This section of
the paper offers some guidelines and suggestions as to how these two
activities, enforcement and accident recording, can be improved.
Enforcement
The success of traffic management measures depends to a great extent
on the precise drafting of traffic legislation and enforcing it.
There are three necessary pre-conditions for the preparation of
traffic legislation. These are:
1. that the highway authority has the necessary powers within the
existing traffic acts to make the regulations and can define
appropriate penalties;
2. that the police declare the proposed regulations to be
enforceable and have the necessary resources to take on
additional enforcement duties I/
3. that the court and administrative systems can handle the
increased work load which will come about from prosecutions
involving the new regulations.
To ensure that such items are feasible it will be necessary for the
police to be involved in the planning of the proposed traffic improvement
schemes and the drafting of the regulations at an early date in the design
process. The design section of the Traffic Management Unit should ensure that
this consultation takes place for all schemes that it proposes.
1/ Very often the installation of traffic signal control devices will allow
police officers who were involved in point duty to be freed for other
enforcement duties.
- 32 -
Given that these conditions can be met, it will then be the
responsibility of the police to ensure that the enforcement procedures are
adequate. To do this the police will need to have a traffic division with
senior officers who are trained in traffic management techniques. These staff
should pass on their knowledge aLnd training to the junior officers who will be
directly involved in the enforcement procedures. It is vitally important that
the officers trained in traffic management remain in the traffic division for
a period of several years rather than move on to different duties. The
traffic division should therefore be structured in such a way as to allow
police officers to follow a career path which will encourage them to remain
in this discipline.
In many of the police forces in less developed countries, the police
traffic divisions are poorly trained and have little or no knowledge of
traffic management techniques. An important priority in these countries
should be to set up police training programs. Such programs are best
developed by consultants or advisors who evaluate the performance of the
existing police traffic division and set out a comprehensive program for
institutional development, training and the purchase of equipment. Ahere such
programs have been undertaken, they have been instrumental in significantly
improving the enforcement of traffic legislation and the attitudes of police
officers towards enforcement duties and the general public.
Enforcement goals and police duties
The principal goal of traffic law enforcement is the safe and
efficient movement of traffic.1/ This goal is achieved by: (a) preventing
violations of traffic laws; (b) persuading road users to remain within the
laws; (c) punishing violators of traffic laws.
Preventive police duties. The principal preventive duties are directing and
supervising traffic, and investigating accidents. Police are expected to:
1. supply information to aid road users in complying with traffic
laws and regulations and direct those unfamiliar with the
locality to desired destinations;
2. indicate to drivers and pedestrians how to behave in a traffic
situation, especially during periods of congestion or where
hazadarous conditions exist;
3. take emergency act-ion to direct traffic flow when the usual
regulations or traffic control devices prove inadequate to meet
unexpected traffic conditions;
1/ Research on Traffic Law Enforcement, a report prepared by an OECD Road
Research Group, April 1974.
- 33 -
4. facilitate the implementation of traffic management components
by assigning special teams to monitor them when they are first
put in place;
5. prevent further damage and injury by warning other traffic
after an accident has occurred;
6. ascertain the circumstances and details of how and when
accidents happen;
7. record and report accurately and factually all relevant
accident information and draw the appropriate conclusions with
a view to enhancing road safetyl'
Persuasive police duties. Persuasive police duties may include:
1. issuing written warnings when the offense is relatively minor,
(for example, driving at a speed marginally above the limit);
2. issuing verbal warnings when this measure is regarded by the
police as most appropriate;
3. visibly patrolling on foot, in cars and motorcycles, since such
action is believed to control road user behavior favorably and
act as a deterrent to potential traffic law offenders.
Punitive police duties. In attempting to enforce traffic laws, punitive
police duties may include:
1. arresting road users when there is a high probability that they
are endangering the lives and property of other road users;
2. immobilizing the vehicles and drivers when the offense warrants
it;
3. initiating action which may lead to a court appearance;
4. applying fixed penalties when minor offenses, such as parking
infringements, are committed in order to avoid saturating the
courts with petty crimes;
5. assisting the courts.
Punitive police duties will be rendered more efficient if:
1. the police are responsible for the licensing of all vehicles
and drivers or the agency concerned has close liaison with the
police. What is important is that the police are able to track
1 For further information on this aspect of police work see pp. 39-40.
- 34 -
down offenders quickly and bring them to court. Strong
consideration should be given to the use of computers where
large numbers of records are kept;
2. the police are able to confront drivers committiag parking
offenses. This can be done by towing away offending vehicles
to a police pound or immobi'lizing the vehicle with a wheel
clamp. The use of this latter method should be avoided if the
offense is committed in a bus lane or other locations severely
affecting traffic flow. In such cases, the offending vehicle
should be towed away as quickly as possible. A fine should be
levied at the pound for the return of the vehicle or at the
nearest police station for removing the clamp. On-the-spot
fines should be avoided since they are open to abuse;
3. all traffic enforcement officers or wardens come under one
authority to ensure a common approach to enforcement. Systems
in which parking is controlled by municipally employed wardens
are only partially effective and depend on good working
relationships with the police.
Improving enforcement
Whatever the organizational structure or degree of traffic
specialization within a police force, it is becoming more and more essential
to adopt selective enforcement techniques because of limited police
resources. Further, the number of traffic offenses which occur, compared with
the opportunities police have for observing these offenses, is
disproportionately high.
Selective enforcement involves deployment of a given number of police
personnel at such times and in such locations as to optimize the safe and
efficient movement of traffic. It may also aim at the detection of certain
categories of offenses. These two systems may be combined. Police personnel
are assigned to work in proportion to time and place distributions of traffic
accidents and, of course, against accident causing offenses, if these have
been determined. Police patrols are also reinforced during periods of high
traffic volumes such as peak hours or traffic congestion caused by special
events.
Selective enforcement programs are devised as a result of statistical
accident analyses which can be carried out with the aid of a computer. If
sophisticated techniques have not been developed, then accident blackspot maps
can be used together with feedback from police patrols.
Police enforcement will also be greatly assisted by the introduction
of traffic signal control (thus freeing officers from point duty), and the
improvement of police mobility through the provision of motorcycles and the
extensive use of radio control. Such equipment will greatly assist the police
in taking emergency action to reduce traffic congestion due to breakdowns or
accidents.
- 35 -
Accident Data Collection
It has been shown through a series of studies/1/2/ that not only are
road accident fatalities significantly high in less developed countries, but
also involve high costs in terms of loss of life and material damage. To the
cost of replacing badly damaged vehicles must be added the cost of imported
spare parts, drugs and medical facilities for treating accident victims.
Thus, investment in road safety could lead to significant savings in both
economic and financial terms.
Attempts to reduce road accidents in developed countries have shown
that the collection and analysis of detailed accident records have been of
great value in designing remedial measures at accident blackspot locations,
and in directing the efforts of road safety organizations and law enforcement
agencies. Unfortunately, accident recording ha become a ritual task, poorly
carried out, inadequately filed and seldom used for anything other than global
statistics on deaths, injuries and damage accidents.
The main difficulties encountered in improving road accident data
collection in developing countries are:
1. developing the political will to do something to improve the
accident situation;
2. introducing new methods to collect and store accident data;
3. training the police, Traffic Management Unit and road safety
organizations in the ways that this information should be used to
direct enforcement, remedial actions and safety campaigns.
Political attitudes to road safety in every country usually pass
through three stages characterized by indifference, talk, and a will for
action.-/ It is only when this last stage is reached that resources are made
available and governments become willing to enact and enforce road safety
legislation. Once this stage has been attained, the first and most important
task is to build up an adequate data base for making well considered decisions
on road safety. This will involve improving the way in which road accident
data is collected and stored by the police. Guidelines and recommendations on
1/ A Study of Accident Rates in Developing Countries, Transport and Road
Research Laboratory (UK), Report LR 546, 1973.
2/ Further Research on Road Accident Rates in Developing Countries, Transport
and Road Research Laboratory (UK), Supplementary Report SR 270, 1977.
1/ R. S. Millard, Road Safety in Developing Countries, World Bank, September
1979.
- 36 -
how this can be achieved are given in the United Kingdom, Transport and Road
Research Laboratory Report LR 676 entitled "Road Accident Data Collection and
Analysis in Developing Cuntriesill--
2/ Copies of this report and other Transport and Road Research Laboratory
Reports can be obtained from the Department of the Environment, Department
of Transport, Crowthorne, Berkshire, RG11 6AU, United Kingdom.
- 37 -
ANNEX I
AGENCY RESPONSIBILITY ANALYSIS AND
AGENCY PERFORMANCE EVALUATION TECHNIQUES
- 38 -
ANNEX I
AGENCY RESPONSIBILITY ANALYSIS AND
AGENCY PERFORMANCE EVALUATION TECHNIQUES
This Annex describes a two-stage process for undertaking diagnostic
studies of the institutional aspects of traffic management. The first stage
involves carrying out an Agency Responsibility Analysis (ARA) covering all
aspects of the urban transport sector and the institutional environment in
which traffic management takes place. The second stage follows on from the
first and involves carrying out Agency Performance Evaluations (APE) for the
primary agencies involved in traffic management, public transport planning and
traffic law enforcement. This more detailed analysis need not necessarily be
limited to the agencies named but could also include agencies responsible for
road safety, vehicle licensing, urban planning, etc. The range of agencies
covered will depend on the results of the ARA analysis, the scope of the
project and the budget and time constraints of the diagnostic studies.
It should be stressed that the process described is a new technique
still in the proving stages. However, it can be seen from the case study
included in Annex II that the systematic approach that the technique employs
brings a sense of order and discipline to the process of identifying
institutional problems. Once those problems have been accurately diagnosed,
proposals can be developed which will assist in promoting institutional
development. To this end, a checklist of key items which should be considered
at project preparation is included in Annex III. It is also important to
stress that the institutional studies should form part of the overall
diagnostic study process which should include performance evaluations of the
traffic and transport systems in the target cities.
The ARA analysis involves identifying at both a national and local
level the sectoral responsibilities of existing agencies. This is
accomplished through the completion of a National Agency Responsibility Matrix
and Local Agency Responsibility Matrix similar to that shown in Attachment
A. The columns ((A) to (M)) of the Agency Responsibility Matrix are the
subsectors which form part of the urban transport environment, and the rows
(1-6) are the areas of responsibility within each subsector. While the
subsectors given in Attachment A are wide ranging, they are not exhaustive. A
more complete list of headings is given in Attachment B. Users of the
technique may wish to add other headings which more closely cover the
situation they are studying.
Once names of the agencies responsible in each sector are centered on
the National Agency Responsibility Matrix, it will be possible to identify
subsectors where responsibilities are wholly held by central government
agencies. These subsectors should be removed from the Local Agency
Responsibility Matrix. This latter form should then be completed with
appropriate amendments for the target cities being considered for inclusion in
the project. Space should be allowed on each matrix sheet for the full names
of the agencies whose acronyms appear in the matrix and these should be
accompanied by explanatory notes.
- 39 -
To obtain the best results, the agency responsibility analysis should
be undertaken at the same time as the performance evaluation of the traffic
and transport systems in the target cities. The operational problems which
these studies bring to light will also provide good indicators for identifying
areas of institutional weakness. Typical problems which the agency
responsibility matrix might highlight are:
1. subsector activities where responsibilities are not specifically
attributed;
2. subsector activities where responsibilities are shared between
several agencies;
3. areas of overlap between political (essentially policy
formulation) and technical responsibilities;
4. areas of overlap between national and local agencies;
5. inconsistencies in responsibilities and the need for improved
coordination between agencies.
Prior to carrying out the Agency Performance Evaluation it will be
necessary to identify from the National and Local Responsibility Matrices the
detailed responsibilities of the national and local agencies involved in urban
transport. This should be done by using formats similar to those shown in
Attachments C (national) and D (local). The second column of these tables
should be filled in with the names of the agencies with primary
responsibilities for the functions indicated in column one, and the third
column should be used to list other agencies involved. A performance
evaluation of the primary agencies sliould then be carried out. The topics
that should be covered and an outline format for the performance evaluation
reports are shown in Attachment E. The performance evaluation should
highlight:
1. poor performance in areas of responsibility;
2. poor coordination and linkages (political and technical);
3. inadequate staffing;
4. inadequate training programs and facilities;
5. poor conditions of employment;
6. lack of equipment and maintenance;
7. inadequate funding;
8. any other pertinent matters relating to agency performance.
- 40 -
Examples of agency responsibility analyses and agency performance
evaluation reports can be found in Annex II.
- 41 -
ANNEX I
AITACHMENT A
AGENCY RESPONSIBILITY MATRIX
URBAN TRAFFIC &
:IANiECCOB TRANSPORT PUHLIC PUBLIC ROAD
POLICY ROAD TRANSPORT TRANSPORT TRAFFPC TRAFFIC SAFETY TRAFFIC/ TRAFFIC!
AOP"NOIHIIITO COORDI- IYFRA- INFRA- COORDI- MANAGE- ROAD ENFORCE- COORDI- ACCIDENT VEHICLE VEHICLE TRANSPORT TRANSPORT
NATION STRUCTURE STRUCTURE NATION MENT SAFETY MENT NATION RECORDING LICENSING SAFETY TRAINING RESEARCH
(A) (B) (C) (D) (E) (F) (G) (H) (I) (J) (K) (L) (M)
I ) . Pf1 epy ..m ir io
E) PD .^.Io
) .l rpa Dv rrrIO i)'
:) Non hiringtl
;) FV3i1.i.4
Reg l.rBit,,i
,Dv
- 42 -
ANNEX I
Attachment B
SUBSECTOR HEADINGS WHICH COULD BE USED IN THE NATIONAL
AND LOCAL AGENCY RESPONSIBILITY MATRICES
Town and Country Planning
Transport Planning
Urban Transport Coordination
Road Infrastructure - Primary Routes, Secondary Routes, Other Roads
Road Construction
Road Maintenance
Public Transport Infrastructure - Rail, Suburban Rail, Light Rail, Others
Infrastructure Maintenance
Public Transport Coordination - Bus, Para-transit, Taxis, Rail
Traffic Management
Traffic Management Coordination
Road Safety
Road Safety Education
Traffic and Road Safety Coordination
Traffic Enforcement
Accident Recording
Accident Analysis and Remedial Measures
Vehicle Licensing
Vehicle Safety
Driver Licensing
Vehicle Supply
Fuel Supply
Vehicle and Fuel Taxes
Traffic/Transport Education
Traffic/Transport Research
Control of Freight Movements
Emergency Services - Ambulance, Fire
- 43 -
ANNEX I
Attachment C
PRINCIPAL TRANSPORT FUNCTIONS AND RESPONSIBILITIES
AT THE NATIONAL LEVEL
Primary Agency Other Agencies
Function Responsible Involved
1. Formulating and Implementing
Policies for:
(a) Urban Transport
(b) Public Transport
(c) Traffic Management
2. Formulating Standards and
Specifications for Materials,
Design, Siting, Operation and
Maintenance of:
(a) Traffic Signs
(b) Road Markings
(c) Traffic Control Devices
3. Formulating Laws and Regulations
Concerning:
(a) Use of Highway by Various
Vehicle Types
(b) Licensing, Regulation and
Testing of Vehicles
(c) Licensing of Drivers
(d) Vehicle Loading
(e) Speed Limits
(f) Traffic Control Devices
(g) Road Safety
4. Assisting Local Authorities with
Traffic and Transport Plans
(a) Appraising Plans
(b) Supervising Implementation
(c) Monitoring
(d) Evaluating Performance
5. Monitoring of Urban Transport
(a) General Traffic
(b) Public Transport
(c) Road Accidents
(d) Vehicle Operating Costs
6. Developing Training Courses in:
(a) Transport Planning
(b) Transport Economics
(c) Traffic Engineering
- 44 -
ANNEX I
Attachment D
PRINCIPAL TRANSPORT FUNCTONS AND RESPONSIBILITIES
AT THE LOCAL LEVEL
Primary Agency Other Agencies
Function Responsible Involved
1. Formulating and Implementing
Policies for:
(a) Urban Transport
(b) Public Transport
(c) Traffic Management
2. Monitoring of Traffic and Transport
(a) Road Traffic
(b) Public Transport
(c) Road Accidents
(d) Vehicle Operating Costs
3. Traffic and Transport Projects
(a) Planning
(b) Design
(c) Implementation
(d) Maintenance
(e) Evaluation
4. Traffic Signs
(a) Siting
(b) Erection
(c) Maintenance
5. Road Markings
(a) Siting
(b) Laying
(c) Maintenance
6. Traffic Control Devices
(a) Siting
(b) Installation
(c) Maintenance
7. Parking Schemes
(a) Design
(b) Implementation
(c) Management
8. Cycle Routes
(a) Planning
(b) Implementation
(c) Maintenance
- 45 -
ANNEX I
Attachment D
(cont'd)
Primary Agency Other Agencies
Function Responsible Involved
9. Heavy Vehicles
(a) Parking
(b) Routes
10. Formulation of Traffic Regulations
(a) Parking
(b) Loading
(c) Speed Limits
(d) Others
11. Enforcement
(a) Parking Regulations
(b) Loading Regulations
(c) Moving Vehicle Regulations
12. Accident Information
(a) Collection
(b) Analysis
13. Accident Blackspot Remedial Measures
(a) Identification
(b) Design
(c) Implementation
(d) Monitoring
14. Public Transport
(a) Coordination
(b) Planning
(c) Control
15. Traffic Management Coordination
- 46 -
ANNEX I
Attachment E
AGENCY PERFORMANCE EVALUATION - REPORT FORMAT
Name of Agency: .. ....................................
Date of Evaluation: ............................... . ..
Evaluation Carried Out By: ...........................
1. Agency History:
2. Political Linkages:
3. Areas of Responsibility:
4. Performance in Areas of Responsibility:
5. Coordination with Other Agencies:
6. Agency Development:
7. Staff - Qualifications and Experience:
8. Staff Training and Development:
9. Conditions of Employment:
10. Equipment:
11. Agency Funding and Budget:
12. Conclusions
- 47 -
ANNEX II
EXAMPLE OF THE APPLICATION OF AGENCY RESPONS)BILITY ANALYSIS
AND AGENCY PERFORMANCE EVALUATION TECHNIQUES
- 48 -
ANNEX II
EXAMPLE OF THE APPLICATION OF AGENCY RESPONSIBILITY ANALYSIS
AND AGENCY PERFORMANCE EVALUATION TECHNIQUES
Introduction
Although this case study is hypothetical, the problems described are
real examples of situations which the author has encountered around the
world. The analyses are intended to show the use of the ARA and APE
techniques rather than present a full diagnostic report. This has been
achieved by concentrating on certain aspects of the situations described. In
a real situation, the ARAs would be much broader and the APEs would cover a
larger number of agencies. The case study is presented in two parts:
Section A - contains the overall findings of the traffic and
transport system diagnostic studies in the main cities
of the country. (This provides essential background
information for Section B).
Section B - contains Agency Responsibility Analyses for national and
local (City A) agencies with explanatory notes and
Agency Performance Evaluations for the two principal
agencies involved in traffic management.
The case study concerns a country of approximately nine million
people, with two main urban centers. The capital city (City A) has a
population of 1.2 million and City B has a population of 500,000. The main
economy of the country is built on agriculture and the export of minerals.
Manufacturing in the transport sector is limited to vehicle assembly (one
plant) and several small body building workshops. Foreign exchange earnings
are moderate but not sufficient to satisfy vehicle import demands. High
duties and taxes have been imposed to reduce vehicle and fuel demands during
the last two years. This has resulted in greater crowding of buses and a
growth in informal transport modes. The government is currently discussing
with a major international aid agency the possibility of obtaining a loan to
improve urban transport.
Road Network and Vehicle Fleet
Road networks provide the only means of transportation in urban areas
throughout the country. The main roads are built to good standards and the
national network is well maintained. Elsewhere, particularly in urban areas,
maintenance is poor, resulting in loss of traffic capacity due to pot holes
and lack of curbs. The proportion of surfaced roads in the two main centers
is 70% in City A and 50% in City B. There are 1800 kms of roads in City A and
1100 kms in City B. In the other ten main urban centers, populations are in
1/ Annex I contains a description of the ARA and APE techniques.
- 49 -
the range of 15,000 to 95,000 and the road networks vary between 200 kms and
60 kms of which an average 25% are paved.
There were 250,000 vehicles registered in 1981, of which 40% were in
City A and approximately 80% of these were private cars. There were 400 buses
operating scheduled services and approximately 1000 mini-buses and converted
pick-up trucks were providing transport services, but these are at present
completely uncontrolled. City B accounts for 20% of the national vehicle
fleet, has about 250 buses and twice as many mini-buses. In all the other
main urban centers except two, mini-buses provide the only means of public
transportation.
Traffic performance
Traffic characteristics in the two main cities are similar. The
principal problems relate to transport supply and traffic congestion. At peak
hours, public transport demand outstrips supply, while congestion in the
central area and along the main corridors causes significant delays to all
vehicles. The morning and evening peak periods each last for a period of
approximately one hour. The situation is aggravated by poor parking control
and lack of enforcement.
Traffic management techniques are sparsely used and existing traffic
signals are few in number and subject to frequent breakdowns. White lining is
generally of a good quality but limited to the main traffic arteries. Traffic
signs appear to be adequate although the signs and markings are not always in
accordance with each other.
Both cities exhibit high accident rates and the recent large increase
in fatal accidents--20% per annum between 1978 and 1980 is particularly
alarming. Vehicle kilometers in the same period decreased slightly due to
large increases in the price of fuel and vehicles.
Transport performance
Buses, mini-buses, private cars and taxis respond to passenger travel
demands in City A. Pedal cycles and mopeds are also used extensively for
shorter trips in the range of 1-5 kms. Approximately 65% of weekday trips are
journeys to and from work. The main bus routes link the low-income housing
and squatter areas, mainly situated on the outskirts of the city, to the
central and industrial areas. Approximately 80% of people traveling to work
from these areas use public transport. Access roads into these areas are not
surfaced and poorly maintained which results in low operating speeds and
significant wear and tear on vehicles.
The 400 buses in City A are run by two private operators, each of
which roughly cover one half of the city. The routes of the two companies are
kept separate, and interchange between routes of the different operators takes
place in the city center by passengers walking the 800 meters which divides
the two central area terminals. The routes are controlled by the Ministry of
Transport, which also controls fare levels.
- 50 -
Mini-buses operate throughout the city in an uncontrolled way. They
use bus stops to pick up and discharge passengers and charge fares which are
generally slightly cheaper than the scheduled bus services. While the bus
operators complain bitterly about the mini-bus operators, public transport
demand is such that the government is unwilling to crack down on their
operation since they fulfill an important need.
The two bus companies achieve a high turn-out of buses due to good
maintenance procedures. Spare parts, however, are getting harder to obtain
and increases in import duties have raised the price of buses by 50% in the
past two years. More than two-thirds of the privately owned mini-buses are
six years old and many are in a poor state of repair. A similar situation
exists in City B.
Institutional Diagnostic Studies
The institutional diagnostic studies should be incorporated into a
comprehensive report bringing together the results of both institutional and
system performance studies. A suggested outline for such a report is shown in
Attachment A. Since this Annex is merely intended to show the application of
ARA and APE techniques, only some of the results of the institutional
diagnostic studies are shown (the full results would normally be included in
the section of the comprehensive diagnostic report dealing with institutional
aspects, Section III in the Outline Report Format).
The National and Local Agency Responsibility Matrices for the case
study are shown in Attachments B and C. Detailed explanatory notes accompany
these two tables. Attachments D and E identify the principal transport
functions and the national and local (City A) agencies responsible. Agency
Performance Evaluations for the Traffic Management Department (TMD) of the
Ministry of Transport and the Police Traffic Department (PTD) are included as
Attachments F and G. Although reference is made to the conclusions of an APE
for the municipality's technical services departments, for the sake of brevity
this has not been included.
- 51 -
ANNEX II
Attachment A
OUTLINE REPORT FORMAT FOR URBAN TRANSPORT DIAGNOSTIC STUDIES
SUMMARY AND CONCLUSIONS
I. INTRODUCTION
A. Background
B. Report Content
II. DIAGNOSTIC STUDY - TRAFFIC AND TRANSPORT SYSTEMS
A. Population Growth
B. Transport Supply and Demand
C. Network Characteristics
D. Traffic Situation
E. Specific Problems
III. DIAGNOSTIC STUDY - INSTITUTIONAL ASPECTS
A. National and Local Agency Responsibility Analyses
B. Agency Performance Evaluations
C. Coordination
IV. NEEDS, ISSUES AND POLICIES
A. Traffic and Transport Systems
B. Institutional Development
V. RECOMMENDATIONS
ANNEXES
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- 53 -
ANN EX I1
ATTACHMENT C
LOCAL AGENCY RESPONSBILITY MATRIX CITY A /1
SUdSKCTOR (I) PUBLIC PUBLIC
--------------- ROAD ROAD TRAFFIC TRANSPORT TRANSPORT
RSSPI,NS ILI LTY TRANSPORT CONSTRUC- MAINTE- ENFORCE- ROAD TRAFFIC TRAFF'IC COORDI- OPERA-
PLANNING Tl(N NANCE MENT MARKING SIGNALS SIGNS NATIOIN TiONS
(A) (B) (C) (i) (E) (F) (G) (H) )I)
i. POLlCY FjRMFIDON NA(2) MT/MA( 3) MT/A(S 3) PTD(4) (PTD(5) NA(6) MA? 7) (8) MA(9)
'. PROG(RA,I F/NSPCE MT'MLG/MLA MT MT/MA MHA MHA MA iLA (8) PTO
S. PROKECT
A) L)FNTLPLCATl)N MA MA MA PTC/MA TMD TMD TMU (8) MA/PTO
B) PREPARArLON MA MA MA MA PTD TMD TMD (8) PTO
.:) APPRAIS-IL NT/MUL; MT MA PTD PTC TIM TMD (d) PTL
I)) iINIEŽL NT fIr )N MA MT/MA MA PTD PTD MA MA (8) PTF
E) S'JPERVISLDN MT MT/MA MT/MA PTI) PTD MA MA (8) PTO
F) MONITORING iCi (10) (10) (10) (10) (10) (10) (8) PTo
.) EVALUATL')N (10 (10) (10) (1U) (10) (10) (10) (8) MA/PTO
4. STANDARDS MT MT MT/MA PTD MT MT MT (8) MA/PTO
5. REGlLATI)NS MT/MLG NT/MA MT/MA PTD MT MT MT (8) MT
S. CGvrRTOL MTV/NG NT/MA MT/MA PTD MT MT MT (8) MT
/ I BEE EXPLANATORY NOTES )ON PACE 55.
ACRONYMS; IA - 'IJNLC[PA Al'THORITY NRSC - NATIONAL ROAD SAFETY COUNCL.
NHA - MNISi'SRY tOME AFFAIRS PTD - POLICE rRAFFIC CEPARTMENT
MLN; - MISNISRY OF LOCAL GOVERNMENT PTO - POLICE TRANSPORT OPERATORS
"T - '1INISTRY OF TRANSPORT
- 54 -
ANNEX II
Explanatory Notes to Attachment B
(1) There is no government ministry with overall responsibility for the
coordination of policy with regard to urban transport. The
principal ministries involved are the Ministry of Transport, the
Ministry of Local Government and the Ministry of Finance. Other
ministries involved in the transport sector are the Ministry of
Power and Energy (MPE) and the Ministry of Trade and Commerce
(MTC).
(2) The Ministry of Transport is responsible for the construction and
maintenance of all primary roads and secondary roads. Maintenance
in the main cities is usually subcontracted to the municipal
authorities.
(3) The Traffic Management Department of the Ministry of Transport was
set up in 1981. See APE for further details (Attachment F).
(4) The National Road Safety Council was set up by the Ministry of
Transport in 1978, comprised of members originally from various
other ministries. A small secretariat coordinates the work of the
NRSC which is principally concerned with the organization of road
safety campaigns.
(5) The National Police are responsible for the enforcement of all
traffic laws and regulations and the recording of accident data.
(6) Urban planning is the responsibility of the municipal
authorities. The work of the authorities is controlled by the
Ministry of Local Government which is responsible for the
allocation and disbursement of capital grants for major urban
development operations.
(7) Vehicle and driver licensing, as well as vehicle inspections, are
carried out by the Ministry of Transport through its regional
offices. There are five inspection centers throughout the country.
(8) At the present, there are no formal training facilities in the
country for traffic or transport subjects. The National University
has a civil engineering department, however, which would be
interested in setting up appropriate courses.
(9) Transport research is carried out on an ad hoc basis through grants
to the National University or by specific departments within the
Ministry. Total funds devoted to research in the past two years
amount to the equivalent of US$150,000.
(10) Monitoring and evaluation of projects and schemes is generally
poor.
- 55 -
ANNEX II
Explanatory Notes to Attachment C
(1) Certain subsectors in the National Responsibility Matrix have been
eliminated from the Local Responsibility 'eIatrix where these have
been adequately explained. This is the case for Traffic Management
and Road Safety. Other subsectors are repeated or subdivided so
that more detail can be presented. This is the case for Traffic
Enforcement, Road Infrastructure and Urban Planning.
(2) Transport planning as such is not practiced. Proposals for major
new roads are included in the municipality's plans. These are
funded by the Ministry of Local Government. Appraisal of such
projects by the Ministry is somewhat cursory.
(3) Construction of primary and secondary roads is carried out by the
Ministry of Transport. The municipalities construct all other
roads. Maintenance of the primary and secondary roads in the
larger municipal areas is subcontracted to the municipality which
is also responsible for all other road maintenance within its
boundaries.
(4) Traffic enforcement is carried out by the Police Traffic Department
(PTD). The PTD works closely with the municipal authority in the
preparation of traffic regulations, signing and marking. See APE
for further details (Attachment G).
(5) The PTD is responsible for road marking. This function may be
transferred to the municipality in 1983.
(6) The municipal authority is responsible for all aspects of traffic
signals, including maintenance. This is usually carried out by the
agent of the equipment supplier who has a contract with the
municipality.
(7) The municipal authority is responsible for all traffic signing.
The signs are made in the municipality's workshop.
(8) Public transport coordination is effectively nil.
(9) While the municipality is theoretically responsible for the
formulation of public transport policies, in practice the operators
are left very much on thier own. The mayor does from time to time
request the operators to introduce or change services, which they
generally comply with. Fare levels are regarded as a politically
sensitive issue and are decided by the Ministry of Transport.
Route licenses are also granted by the Ministry of Transport. Very
little planning is involved in the designation of routes.
(10) The monitoring and evaluation of projects and schemes are generally
poor.
- 56 -
ANNEX II
Attachment D
PRINCIPAL TRANSPORT FUNCTIONS AND RESPONSIBILITIES
AT THE NATIONAL LEVEL
Primary Agency Other Agencies
Function Responsible Involved
1. Formulating and Implementing
Policies for:
(a) Urban Transport MT, MLG,
(b) Public Transport MTC, MPE
(c) Traffic Management MT (TMD)
2. Formulating Standards and Speci-
fications for Design, Siting,
Materials, Operation and
Maintenance of:
(a) Traffic Signs MT (TMD)
(b) Road Markings MT (TMD) NP
(c) Traffic Control Devices MT (TMD) MA
3. Formulating Laws and Regulations
for:
(a) Use of Highway by Various
Vehicle Types MT NP
(b) Licensing Regulation and
Testing of Vehicles MT NP
(c) Licensing of Drivers MT NP
(d) Vehicle Loading MT NP
(e) Speed Limits MT NP
(f) Traffic Control Devices MT NP
(g) Road Safety MT NRSC
4. Assisting Local Authorities
with Traffic and Transport
Plans
(a) Appraising Plans MT/MLG
(b) Supervising Implementation MT
(c) Monitoring.
(d) Evaluation Performance
5. Monitoring of Urban Transport
(a) General Traffic MT (TMD)
(b) Public Transport
(c) Road Accidents
(d) Vehicle Operating Costs MT (TMD)
- 57 -
6. Developing Training Courses
(a) Transport Planning
(b) Transport Economics
(c) Traffic Engineering
Note: A hyphen (-) indicates that responsibilities are not
assigned or not effectively carried out by any agency.
- 58 -
ANNEX II
Attachment E
PRINCIPAL TRANSPORT FUNCTIONS AND RESPONSIBILITIES
IN CITY A
Primary Agency Other Agencies
Function Responsible Involved
1. Formulating and Implementing
Policies for:
(a) Urban Transport MA MT, MLG
(b) Public Transport MA
(c) Traffic Management MT (THD
2. Monitoring of Traffic and Transport
(a) Road Traffic MT (TMD)
(b) Public Transport MT (TMD)
(c) Road Accidents PTD
(d) Vehicle Operating Costs MT (TMD)
3. Traffic and Transport Pro,jects
(a) Planning MT
(b) Design MT (TMD)
(c) Implementation MT (TMD) MA
(d) Maintenance MA MA
(e) Evaluation
4. Traffic Signs
(a) Siting MT (TMD) MA, PTD
(b) Erection MA
(c) Maintenance MA
5. Road Markings
(a) Siting MT (TMAD) MA, PTD
(b) Laying PTD
(c) Maintenance PTD
6. Traffic Control Devices
(a) Design MT (TMD) MA, PTD
(b) Implementation MA
(c) Maintenance MA
- 59 -
7. Parking Schemes
(a) Design MA PTD
(b) Implementation MA
(c) Management MA
8. Cycle Routes
(a) Planning -
(b) Implementation -
(c) Maintenance
9. Heavy Vehicles -
(a) Parking -
(b) Routes
10. Formulation of Traffic Regulations
(a) Parking MA MA, MT (TMD)
(b) Loading MA MA, MT (TMD)
(c) Speed Limits PTD
11. Enforcement of Regulations
(a) Parking PTD
(b) Loading PTD
(c) Moving Vehicle PTD
12. Accident Information
(a) Collection PTD
(b) Analysis PTD MT (TMD)
13. Accident Blackspot Remedial Measures
(a) Identification MT (Tt4D) MA, PTD
(b) Design MT (TMD) MA, PTD
(c) Implementation MA
(d) Monitoring -
14. Public Transport
(a) Coordination -
(b) Planning -
(c) Control -
15. Traffic Management Coordination MT (TMD) MA, PTD
NOTE: A hyphen (-) indicates that responsibilities are either not assigned
or not effectively carried out by any agency.
- 60 -
ANNEX II
Attachment F
AGENCY PERFORMANCE EVALUATION
Agency: Traffic Management Department (Ministry of Transport)
Date: August 1982
Evaluation Carried Out By: (Name of Person)
1. Agency History
The Traffic Management Department (TID) of the Ministry of Transport was
created in July 1981 at the request of the minister. It had been recognized
for some time that traffic conditions in the capital were steadily worsening
and that the Public Works Department of the municipality was not in a position
to take on the responsibilities attached to improving them even if it could
have found engineers with experience in traffic management. The Ministry,
recognizing the need for training in this area, sent two engineers on one-year
overseas courses in 1980. They returned in 1981 to form the nucleus of the
new TMD. A foreign advisor was appointed to the TMD in December 1981.
2. Political Linkages
The head of the TMD reports directly to the Ministry's chief engineer
who in turn reports to the permanent secretary. All policy decisions and the
outline work program of the TMD are referred to the minister for approval, who
reports to the government cabinet. Liaison meetings are beginning to be held
by the TMD with the mayor of City A concerning possible projects. The mayor
generally prepares for these meetings by holding discussions with the city
councilLors. The head of the municipality's Public Works Department attends
the liaison meetings.
3. Areas of Responsibility
The initial terms of reference of the TMD are to develop the use of
traffic management techniques and implement schemes in City A. Eventually it
is recognized that the TMD will also get involved in traffic improvement
projects in City B. This expansion of activities is mainly limited by a lack
of trained staff. The TMD staff are therefore concentrating their efforts in
City A where they are collecting traffic data and preparing schemes.
Implementation of improvement schemes at two critical junctions will begin in
1983.
4. Performance in Areas of Responsibility
The work of the TMD, although limited in scope, has been well carried
out. A small team of enumerators has been trained and is collecting traffic
data on a regular basis. Some delays were experienced in obtaining adequate
base plans for the proposed improvement schemes. This problem was remedied by
the temporary transfer of two surveyors from another department of the
Ministry.
- 61 -
5. Coordination with Other Agencies
A techincal committee has been set up by the TMD to assist in the work
of project preparation. The committee includes the head of the Police Traffic
Department (PTD) and the Director of Public Works of the municipality. (These
officers and the head of the TMD also serve on the National Road Safety
Council which organizes and coordinates road safety campaigns). The TMD is
responsible for project design, the police for the laying of markings and the
municipality for the erection of traffic signs.i/ It has been agreed that
responsibility for road marking in City A will be transferred from the PTD to
the municipality's Public Works Department in 1983. The TMD has been asked
recently to comment on urban planning and road infrastructure proposals for
City A by the minister although no formal coordination mechanism for urban
transport planning has been set up.
6. Agency Development
Since it began operating in mid-1981, staff of the TMD has grown from
two to four professionals, six technicians and ten enumerators. This rapid
growth has posed some problems particularly with regard to training. Apart
from the foreign advisor, who has ten years experience, the rest of the
professionals are civil engineers with no training in traffic engineering
except for a one-year course in transport planning which two of them
attended. Expansion of TMD's activities will not be effective unless geater
emphasis can be given to the training of local staff.
7. Staff - Qualifications and Experience
The current staff list of the TMD includes:
Professionals Qualification Age
Head of the TMD Civil Engineer* 46
Assistant Engineer No. 1 Civil Engineer* 32
Assistant Engineer No. 2 Civil Engineer 30
Advisor Traffic Engineer 36
* Attending overseas training course.
Technicians
2 Draftsmen
3 Clerks
1 Supervisor of Traffic Counts
1/ A decision was taken that traffic signs would be made in the
municipality's workshop and that the Ministry of Transport workshop would
continue to make signs only for inter-urban and rural roads.
- 62 -
Others
9 Enumerators
1 Driver
1 Secretary
1 Messenger
8. Staff Training and Development
To date, staff training has been carried out by the advisor on an ad hoc
basis. There are no formal training opportunities in the country.
9. Conditions of Employment
Conditions of employment are generally satisfactory and on a level with
other government departments.
10. Equipment
The TMD possesses three automatic traffic counters of which two are very
old and constantly needing repair. They all operate using pneumatic tubes.
There are no stop watches. The enumerators and traffic counters are
transported to site in a Land Rover which is at the permanent disposal of
the TMD. The department has an adequate number of calculators and other
office equipment. Printing and photocopying facilities are shared with other
departments of the Ministry.
11. Agency Funding and Budget
The TMD is totally financed by the Ministry of Transport. It has a
total capital budget of the equivalent of US$200,000 for the current financial
year (July 1 to June 30). The majority of this will be spent on the two
junction improvement schemes.
12. Conclusions
The TMD has made a good start, but its future development and the scope
of its activities will be limited unless it can employ experienced
professionals in the fields of traffic engineering, transport planning and
economics. Training is also a major requirement, preferably through the
organization of local workshops or courses and on-the-job training. The
department would also benefit from the purchase of new automatic traffic
counters and stop watches for carrying out journey/time surveys. Hand talleys
could also assist in improving the efficiency of the enumerators.
Major areas for improvement exist in the coordination of government
policies with regard to urban transport and the coordination, planning and
control of public transport operations. Although this latter activity should
be a municipal function, the existing technical service departments of the
municipality are ill equipped to assume the responsibility. The conclusions
of the Agency Performance Evaluation for the municipality's technical services
departments indicate that considerable strengthening would be required before
any new responsibilities could be assumed. Therefore, it would be more
- 63 -
appropriate in the first instance to expand the TMD by creating a public
transport cell. This cell would work closely with the City Council and the
Mayor in developing public transport policies and strategies, and expand the
existing public transport control and regulation mechanisms currently carried
out by the Ministry. The cell would also undertake public transport studies
to improve routing patterns and interchange between different routes and
operators. The whole question of the integration of the mini-bus operators
into the public transport system should also be studied. The creation of the
public transport cell within the TMD would facilitate the planning of public
transport priority measures and their incorporation into the TMD's projects.
The objective of these studies and measures should be to improve the
efficiency of the existing vehicle fleet and provide better service to users.
As far as the coordination of government policies with regard to urban
transport are concerned, it would beneficial to create a Transport Advisory
Group (TAG) comprised of senior officials from government ministries and other
agencies involved in urban transport. The TMD should act as the liaison
agency in organizing meetings of the TAG. The TMD will also be involved in
researching policy matters and presenting proposls to the TAG for
discussion. It is suggested that the Permanent Secretary of the Ministry of
Transport be appointed chairman of the TAG. One of the principal objectives
of the TAG should be to achieve an integrated urban transport policy which
increases the supply and efficiency of urban public transport services.
- 64 -
ANNEX II
Attachment G
AGENCY PERFORMANCE EVALUATION
Agency: Police Traffic Department (City A)
Date: August 1982
Evaluation Carried Out By: (Name)
1. Agency History
The Police Traffic Department (PTD) of City A was created in i970.
Prior to that date traffic duties formed part of general policing duties.
2. Political Linkages
The PTD is part of the City A police division. The Police Commissioner
for City A reports directly to the Ministry of Home Affairs. There is no
direct political linkage with the City Council.
3. Areas of Responsibility
The PTD is responsible for road marking within the city boundary, the
enforcement of traffic laws and parking regulations and the collection of
accident data. The PTD also assists the National Road Safety Council (NRSC)
in the preparation of road safety campaigns. (Activities of the NRSC are
limited due to lack of funds).
4. Performance in Areas of Responsibility
The road marking activities of the PTD are reasonably well executed.
Maintenance could be reduced if thermoplastic materials were used instead of
normal paint. At the moment, markings on the busiest roads need to be
replaced every six months.
Enforcement of parking regulations is relatively poor. This is mainly
due to police attitudes and inadequate laws. Parking tickets and other
penalties can only be served by police to the driver of the vehicle in
person. This requires the police to wait around for drivers to return to
their vehicles. A proposal to change this law is in the process of being
examined. However, before this change can be implemented, it will be
necessary to overhaul the administrative and court systems in order to deal
with the large increase in tickets which could be expected. A proposal to
purchase five tow trucks to assist in the enforcement of parking offenses is
currently being considered.
The present attitude of the police to the collection of accident data is
that it is a chore. Consequently, the quality of the completed accident forms
is varied and the accident location is often not accurately identified. The
accident report forms are filed at each local police station. Monthly
summaries of total accidents, deaths and injuries are sent to the PTD. Use of
- 65 -
accident information for the alleviation of accident blackspots was
practically non-existent until the formation of the Ministry of Transport's
TMD. The TMD are attempting to use this data in the design of the junction
improvement schemes and have asked the police to centralize the storage of
accident report forms, and maintain an accident map showing the location of
all accidents in City A. This has not yet been done.
5. Coordination with Other Agencies
The head of the PTD is presently involved in coordinating with the TMD
on the preparation of traffic improvement schemes and serves on the NRSC.
Prior to the formation of the TMD, the PTD would meet with the municipality
whenever either felt it necessary to introduce changes in the traffic system.
6. Agency Development
Details of the evolution of the PTD are difficult to obtain. It would
appear that present staff levels have not changed in the past two or three
years.
7. Staff
The PTD comprises two inspectors, six sergeants and 60 officers. Nearly
all the officers are involved in junction control duties at peak hours.
8. Staff Training and Development
None of the staff of the PTD have received special training in traffic
management. Senior officers in the PTD are rotated every three years to
obtain experience in other police duties. Sergeants and officers are
generally only transferred on request.
9. Conditions of Employment
The offices of the PTD are extremely cramped. This is one of the
reasons for the delay in centralizing accident records; otherwise, conditions
are similar to those of other government departments.
10. Equipment
The PTD possesses ten motorcycles and three Land Rovers which are used
for a variety of duties. Six of the motorcycles are more than ten years old,
the remainder were purchased in the last three years. The older cycles are
subject to frequent breakdowns. The Land Rovers are five years old and in a
good state of repair. The PTD does not possess equipment for speed
measurement or control of exhaust emissions. Road marking equipment is old
but in good condition. The purchase of modern equipment could improve
efficiency.
- 66 -
11. Agency Funding and Budget
The activities of the PTD are financed by the Ministry of Home
Affairs. No details were available on the operating budget.
12. Conclusions
There is considerable scope for improving the performance of the PTD's
activities, particularly with regard to improving enforcement and the
recording and analysis of accident statistics. Improvements in enforcement
should be brought about by changes in the laws with regard to the serving of
tickets for offenses, educating police officers in traffic management
objectives and techniques, renewing and expanding the fleet of motorcycles,
introducing selective enforcemernt techniques and installing traffic signals at
key intersections. The proposal to purchase tow trucks would also assist in
enforcement duties. Consideration should also be given to the purchase of
wheel clamps.
The accident report form should be improved so that it is more suited to
carrying out accident analyses and stricter control should be exercised over
the filling in of the reports. An enhanced record system should be introduced
with a central registry which is readily accessible to staff of the PTD and
the TMD.
It would also be of benefit to appoint an advisor(s) to carry out a
detailed study of the PTD and the framework within which it operates to find
ways of improving its efficiency and the attitudes of the officers involved in
enforcement duties.
The intended transfer of road marking activities to the municipality is
desirable. The purchase of new equipment and materials should be given strong
consideration. Care should be taken in the change-over period to ensure that
staff of the municipality are adequately trained.
- 67 -
ANNEX III
SUMMARY CHECKLIST FOR PREPARING INSTITUTIONAL
DEVELOPMENT COMPONENTS FOR TRAFFIC MANAGEMENT
- 68 -
ANNEX III
SUMMARY CHECKLIST FOR PREPARING INSTITUTIONAL DEVELOPMENT
COMPONENTS FOR TRAFFIC MANAGEMENT
1. Carry out diagnostic studies of the performance of traffic and transport
systems and of the main public transport operators.
2. Carry out diagnostic studies of the institutional arrangements for
traffic and transport at a national and local level.
National Agencies
3. Identify national agency to be responsible for traffic management and
urban transport.
4. Define functions, structure and staffing of national agencies
responsible for traffic management and urban transport.
5. Define political linkages for national agencies.
6. Define functions and members of national Transport Advisory Group.
7. Define technical assistance needs.
8. Define training needs.
9. Define equipment needs.
10. Define budget requirements.
Local Agencies
11. Identify local agency within which the Traffic Management Unit would be
established.
12. Define functions, structure and staffing of local Traffic Management
Unit.
13. Define functions, structure and staffing of local enforcement agency.
14. Define political linkages for local agencies.
15. Define functions and members of local Traffic and Road Safety Committee.
16. Define technical assistance needs.
17. Define training needs.
18. Define equipment needs.
19. Define budget requirements.
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Urban Development Technical Paper ISSN 0253-3324
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