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Draft Tripartite Vehicle Load Management Initiative

November 2014

Draft Tripartite Vehicle Load Management Strategy and Implementation Plan – Ver. 1: 27-10-14

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Contents ABBREVIATIONS AND ACRONYMS ............................................................................. iv EXECUTIVE SUMMARY............................................................................................. E-1 1. INTRODUCTION 1.1 Background ............................................................................................................ 1 1.2 Purpose and Scope ................................................................................................ 2 1.3 General Approach .................................................................................................. 2 2. DEVELOPMENTS IN VEHICLE LOAD MANAGEMENT 2.1 Introduction ............................................................................................................ 3 2.2 Traditional Approaches to Vehicle Load Management.......................................... 3 2.3 New Approaches to Vehicle Load Management .................................................... 4 2.5 Need for Regional Harmonisation ......................................................................... 5 2.4 Summary of Current Status of VLM Policy and Strategy in the Tripartite Region . 5 3. POLICY AND STRATEGY FOR VEHICLE LOAD MANAGEMENT

3.1 Introduction ............................................................................................................ 6 3.2 Key Elements of a Regional Load Management Strategy ....................................... 6 3.3 Implementation Issues ........................................................................................... 7 3.4 Policy Enabling Framework..................................................................................... 8 3.5 Strategic Element 1 – Institutional Arrangements ................................................. 9 3.6 Strategic Element 2 – Legislation and Regulations .............................................. 11 3.7 Strategic Element 3 - Weighbridge Infrastructure and Equipment ..................... 14 3.8 Strategic Element 4 - Weighbridge Operations and Management ...................... 17 3.9 Strategic Element 5 - Human Resources and Training ......................................... 19 3.10 Strategic Element 6 - Public Awareness and Support .......................................... 20 3.11 Strategic Element 7 - Monitoring and Evaluation ................................................ 21

4. IMPLEMENTATION PLAN AND COSTS

4.1 Introduction ......................................................................................................... 22 4.2 Implementation and Coordination Mechanisms ................................................. 22 4.3 Principles for VLM Implementation .................................................................... 22 4.4 Policy and Oversight for Implementation of VLM Strategy ................................. 23 4.5 Roles and Responsibilities of Key Institutions ..................................................... 23 4.6 Challenges in Implementation of VLM Strategy and Implementation Plan ........ 25 4.7 Strategies for Implementation of VLM Strategy and Implementation Plan

Priorities: 2015 – 2020 ......................................................................................... 26 4.8 Implementation Plan ............................................................................................ 27 4.9 Proposed Approach to Develop Tripartite VLM Strategy and Implementation

Plan and Budget: 2015 – 2020. ............................................................................ 27


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ANNEXES Annex 1 – Draft Road map for the Finalisation of VLM Strategy and Implementation Plan and Budget, November 2014 – March 2015 .......................................... 29

Annex 2 – Survey questionnaire ..................................................................................... 31 Annex 3 - Draft Template 5-Year VLM Strategy and Implementation Plan and

Budget, (2015-2020) ................................................................................... 38 LIST OF FIGURES Figure 3-1: Elements of an enabling framework for VLM ................................................ 6 Figure 3-2: Key elements of a regional VLM strategy ....................................................... 7 Figure 3-3: Typical layout of a FTCC facility (showing only one side of road) ................ 15 Figure 3-4: High level planning of weighbridge network facilities ................................. 18 LIST OF TABLES Table 3-1: Institutional arrangements for VLM ................................................................ 9 Table 3-2: Weighbridge types and characteristics .......................................................... 14 Table 3-3: Type of weighbridge in relation to commercial traffic volume & road class 15 Table 3-4: Summary of private sector involvement options in VLM .............................. 18 Table 4-1: Implementation Plan and responsibilities ..................................................... 27


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ABBREVIATIONS AND ACRONYMS

ASANRA COMESA

Association of Southern African National Roads Agencies Common Market for Eastern and Southern Africa

EAC East African Community EATTFP East African Trade and Transport Facilitation Project ESA Eastern and Southern Africa EU European Union FCFASA FEAFFA FESARTA FTCC GCM

Federation of Clearing and Forwarding Associations of Southern Africa Federation of East Africa Freight Forwarding Associations Federation of East and Southern African Road Transport Associations Full Traffic Control centre Gross Combination Mass

GVM Gross Vehicle Mass HSWIM High Speed Weighing-in-Motion LSWIM Low Speed Weighing-in-Motion MoWT Ministry of Works and Transport NTP PMAESA

National Transport Policy lan Ports Management Association of East and Southern Africa

REC SADC SST

Regional Economic Community Southern African Development Community Specialist Support Team

WB Weighbridge WIM VLM

Weighing-in-Motion Vehicle Load Management


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EXECUTIVE SUMMARY

To be completed after the VLM workshop and meeting and incorporated into the final

version of this report.

Draft Tripartite Vehicle Load Management Strategy and Implementation Plan – Ver 3: 06-11-14

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1. INTRODUCTION 1.1 Background Road transport plays a fundamental role in the socio-economic growth and development of many, particularly developing, countries. In Africa, it generally provides the dominant mode of freight and passenger transport and carries between eighty and ninety percent of the continent’s total trade in goods and services. Thus, in order to attain acceptable levels of road transport efficiency, the management and maintenance of road infrastructure form an important part of development programmes in all countries. In this regard, the control of overloading as part of a broader “vehicle load management initiative”1 is of paramount importance as it affects the rate of deterioration and maintenance costs of road pavements.

Unfortunately, overloading of commercial vehicles in Africa has been an on-going and costly problem for many years. When coupled with lack of adequate maintenance, it has resulted in the accelerated deterioration of the region’s roads causing the loss of precious infrastructure worth millions of dollars; this has had an adverse impact on the economies of all African countries. For example, transport costs for Eastern and Southern Africa are estimated to be four to five times higher than that of developed countries and for some landlocked countries as high as 30–40 per cent of the price of goods. Such high costs not only suppress international trade but also impact adversely on the economic competitiveness of Africa. The issue of vehicle load management (VLM) has been under consideration by the Regional Economic Communities (RECs) of EAC, COMESA and SADC (the Tripartite) for more than two decades. During this time, numerous studies have been undertaken to try and determine how best to deal effectively with the many issues related to VLM on a regional basis including, most recently the Study for the Harmonization of Overload Control in the East African Community (PADECO, September 2011) and Study on Road Transport Market Liberalisation in the COMESA-EAC-SADC Tripartite Region: Lot 1: Vehicle Overload Controls (Aurecon, October 2013). These key studies provide a blue print for implementation of regionally agreed, harmonized approaches to VLM in the Tripartite region that take account not only of international best practice but, also, of the existing instruments and implementation experiences of each of the three RECs. Whilst progress in VLM has been made in some of the Tripartite countries, this has not been the case in many others where it remains a major problem. Indeed, in a recent report by the European Court of Auditors (Special Report No. 17 2012), it was concluded that “Most of the partner countries have made unsatisfactory progress on vehicle overloading, which has an important impact on road life expectancy and maintenance costs.” In light of this finding, they recommended that future investments should include, in part, the implementation of an effective axle load control policy. To this end, and as part of its regional integration strategy in support of the establishment of a Free Trade Area, the Tripartite has already adopted harmonised standards on VLM including agreed load limits and other aspects of load management. These standards have emanated from the PADECO study which culminated in the

1 The term “vehicle load management” is an all-embracing one which includes not only measures for controlling vehicle

overloading but, also, other related aspects of vehicle load management such as the institutional, legal and operational ones.


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development of an EAC Vehicle Load Control Act of 2013 and supporting draft regulations which have been accepted, in principle, by all stakeholders as a blue print for implementation in the Tripartite region. In order to facilitate the adoption of a Tripartite Strategy and Implementation Plan, the EU and the Tripartite have agreed to cooperate in organizing a workshop on VLM Regulation and Enforcement in the East and Southern Africa (ESA) region. The main objective of the workshop will be to deliberate and agree upon a Tripartite Strategy and Implementation Plan for the synchronised and coordinated implementation of agreed measures focused at supporting Member States to implement the legislative, policy, regulatory systems and standards at regional, national and corridor level necessary for ensuring harmonised vehicle load management in the ESA region.

1.2 Purpose and Scope The main purpose of this Strategy and Implementation Plan is to provide a framework for the development of the Tripartite implementation strategy and roadmap for overcoming the challenges to effective VLM in the ESA region. The overall goal is to expedite the adoption of this strategy and roadmap for implementing the agreed policy, legal, regulatory, and institutional arrangements at regional, national and corridor levels in the ESA region. Achievement of this goal hinges critically on a thorough appreciation of the underlying issues involved and knowledge of prevailing good practice, both regionally and internationally. To this end, this VLM Strategy and Implementation Plan:

provides an overview of developments in VLM in the ESA region with a view to motivating a strong case for regional harmonization and coordination in this initiative;

presents the key elements of a harmonized policy and strategy on various aspects of VLM for adoption in the ESA region based on a knowledge of the requirements in relation to that prevailing in ESA countries;

presents a time-bound implementation plan and costs for action by key actors in VLM in the ESA region (to be completed after VLM workshop).

1.3 General Approach The following relatively recent reports were reviewed in the course of preparing this report:

Regional Workshop on Harmonization of Key Elements and Implementation of Best Practice in Overload Control, Nairobi, Kenya, July 2008 (Infra Africa et al, 2008);

Overload Control Practices in Eastern and Southern Africa – Main Lessons Learned (World Bank Paper 91, April 2010);

Study for the Harmonisation of Vehicle Overload Control in the East African Community (PADECO, September 2011);

Preparation of a transport facilitation strategy for the East African Community (the BICO Report, October 2012);

The East African Community Vehicle Load Control Bill; 2013.

Study on Road Transport Market Liberalisation in the COMESA-EAC-SADC Tripartite Region: Lot 1: Vehicle Overload Controls (Aurecon, October 2013).

A Harmonized Road Transport Regulatory System for the ESA Region (Porée & Associates, March 2014);


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The above reports provide the latest thinking on VLM issues including the elements that constitute a regionally harmonized strategy for adoption in the ESA region.

2. DEVELOPMENTS IN VEHICLE LOAD MANAGEMENT

2.1 Introduction This section provides an overview of the traditional approaches to VLM typically followed in many ESA countries that have not yet updated their legislation in line with international best practice. These approaches serve as a point of departure for their updating in line with the trend-setting developments that have taken place in the ESA region in the past few years. These developments form the basis for updating those outdated aspects of VLM that may still exist in some countries.

2.2 Traditional Approaches to Vehicle Load Management

Traditional approaches to undertaking vehicle load management in many countries tend to suffer from a number of shortcomings and, as a result, generally fail to achieve the primary goal of preserving the road infrastructure. Instead, they are characterized by various shortcomings as summarized below: They provide a criminal response to overloading offences which generally results in very

low conviction rates; this is due largely to legal technicalities and the inability of the courts to effectively cope with what is considered “non-serious” cases compared to more serious crime cases. As a result, there are few incentives to curb overloading.

The criminal approach tends to focus mostly on “on–the-road” enforcement although there are a number of other complementary responses available including the application of a range of incentives and disincentives alongside actual vehicle weighing.

Weighbridge operations are generally carried out in-house by relatively low paid staff

and, as a result, tend to be conducive to bribery and corruption with the result that unscrupulous operators readily engage in such malpractice.

The use of weighbridge equipment which is often not properly calibrated and verified by

authorized personnel, often resulting in contentious load readings;

There is often no “price” for overloading and offenders pay little, if any, money to road authorities to compensate for their increased burden of maintenance costs. What they do pay as a fine is generally very low in relation to the cost of the damage done and is not really a deterrent to overloading. Indeed, it generally pays operators to deliberately overload and pay relatively low fines on “admission of guilt” for so doing.

Among road transport authorities, only the traffic police (and sometimes transport

inspectors) have a direct responsibility to control overloading practices. However, their efforts have little deterrent value due to the constraints of the criminal justice system.

By-passing of weighbridges by transporters is common practice and is generally not

adequately dealt with in the regulations thereby adding to the incidence of overloading on road networks.


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Road authorities, who have a primary responsibility for preserving the road infrastructure, have a limited role in regulating vehicle loading.

Current approaches fail to achieve the primary goal of preserving the road infrastructure. Instead, they are characterized by inefficiency and inequities.

From a regional perspective, current regulations are often not harmonized amongst

adjacent countries resulting in a number of differences in approach to overload control which have adversely affect transport efficiency along regional corridors.

In summary, for the reasons cited above, the traditional, government-driven, approaches to overload control have generally been ineffective and are likely to remain so unless there is a radical change in philosophy.

2.3 New Approaches to Vehicle Load Management

2.3.1 The regional vision Based on extensive consultations with a cross-section of both public and private sector stakeholders in the Tripartite region during 2011, a reform strategy for VLM has emerged through the EAC Trade and Transport Facilitation Project (EATTFP) project. This initiative, which is coordinated by EAC on behalf of the EAC/COMESA/SADC tripartite alliance, culminated in the Study for the Harmonization of Vehicle Overload Control in the East African Community. August 2011. The far-reaching recommendations of the study were adopted by all EAC Partner States at a tripartite meeting held in Nairobi from 17 – 19 August, 2011 and constitute a major step forward towards wider regional harmonization of vehicle overload control in the ESA region.

The new approaches to VLM being promulgated in the ESA region address many of the

glaring shortcomings of previous approaches. Examples include:

Recommendations on a regional strategy on the management of overload control which focuses first on regional corridors to ensure a coordinated approach within ESA countries and then on priority national trunk roads. Key aspects include:

o Strategic deployment of weighbridges along regional corridors using appropriate, high speed, weighing equipment (Weighing-in-Motion) in combination static weighing;

o Electronic linking of weighbridges to a central control facility for monitoring of various aspects of overload control including comparison of results between weighbridges and analysis of time series data to detect any discrepancies linked to fraud;

o Outsourcing weighbridge management and/or operations to the private sector and embarking on a commercialized public/private sector approach to overload control;

o Independent auditing of weighbridges for measuring and assessing the adequacy and efficiency of operations including possible fraudulent activities;

o The use of only axle unit or multi-deck scales for weighing purposes and the exclusion of single axle scales which are inherently inaccurate;


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o The adoption of “self-regulation” of certain types of vehicles involving the monitoring of vehicle loads at origin and/or destination based on operator supplied data.

o The involvement of Customs in providing a further screening of vehicle loads at entry/exit borders locations.

Development of regionally harmonized overload control regulations which address shortcomings of traditional approaches including:

o Standardized regionally agreed axle load and GVM/GCM limits and a Bridge Formula to protect bridges.

o Standardized procedures for conducting all vehicle weighing operations;

o Mandatory calibration and verification of all weighbridge scales;

o Adopting a “chain of responsibility approach” in which key actors (e.g. the consignor, consignee, transporter and driver) are held severally responsible for overloading

o Decriminalisation of offenses for overloading by handling them administratively.

o Specific measures for dealing with Live, Dangerous or Hazardous Cargoes as well as “awkward” loads;

o Linking level of imposed fees for overloading with actual cost of road damage, i.e. by imposing economic fees.

o Introduction of penalties for absconding vehicles.

The above approaches constitute important reforms in what may be termed a Vehicle Load Management Initiative, similar in concept to the successful road sector reforms undertaken in the Sub-Saharan Africa region based on the well known World Bank/SSATP Road Management Initiative (RMI).

2.4 Need for Regional Harmonisation The main elements of the harmonized approaches to vehicle overload control in the EAC region provide a critical input towards the formulation of a regional policy and strategy which focuses on controlling commercial vehicles moving on regional corridors in order to ensure a co-ordinated and harmonised approach within ESA countries. In this regard, all Governments in EAC, SADC, COMESA have undertaken to promote convergence and compatibility with regional trends by adopting a unified approach to issues of common interest in the transport sector, such as overload control. This implies a need for: physical and operational integration of overload control networks; convergence of policies; joint planning; harmonisation of standards and operations; joint cross-border operations; harmonised law enforcement; and accession to regional agreements and protocols.

2.5 Summary of Current Status of VLM Policy and Strategy in the Tripartite Region This section to be completed after analyzing responses to survey questionnaire to be distributed to delegates at the VLM workshop and meeting of Senior Officials.


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3. POLICY AND STRATEGY FOR VEHICLE LOAD MANAGEMENT

3.1 Introduction

Currently, there is no comprehensive, over-arching regional policy and related strategy on VLM in the Tripartite region. Such a policy and strategy are urgently required to provide the essential framework in which VLM can be carried out efficiently and effectively. These requirements should be underpinned by a regional, enabling framework for VLM which would contain, in a hierarchical order, a number of interdependent elements as illustrated in Figure 3.1.

Vision Guides Policy making on VLM over a long term planning horizon.

Policy

Reflects Vision and guides Strategy on VLM by providing a set of guiding principles that are linked directly to national policy.

Strategy Sets out the direction and means of implementing VLM Policy.

Programmes

Formulate the measures by which the various elements of the VLM Strategy are achieved.

Projects

Provide a specification that will contribute to the achievement of the VLM Programme

Plans

Mobilise the resources required to implement the VLM Projects over a given period of time.

Implementation

Executes the VLM projects in accordance with the Plans

Monitoring & Evaluation

Checks whether VLM goals and objectives have been achieved and provides lessons for the future.

Figure 3-1: Elements of an enabling framework for VLM

The elements presented in Figure 3-1 would guide the manner in which VLM projects are implemented. For example, in the absence of a supporting policy on VLM, there would be little likelihood of obtaining funding for construction of new weighbridges or of improving institutional arrangements for carrying out VLM operations. Thus, it is of paramount importance that at least the higher order elements of the enabling framework are in place, i.e. vision, policy and strategy, before embarking on the implementation of the lower order elements of the framework. Accordingly, there should be a shared vision on VLM which should be in keeping with that espoused by the Tripartite - “to ensure and sustain the development of an adequate road network in support of regional socio-economic growth by providing, maintaining and improving all roads in order to minimise total road transport costs and to preserve assets vested in road infrastructure”.

3.2 Key Elements of a Regional Vehicle Load Management Strategy


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Figure 3.2 illustrates the various elements of a regional overload control strategy which, in keeping with the vision and policy of the Tripartite, aims to:

Preserve road infrastructure (roads and bridges); Enhance road traffic safety; and Optimise road transport operations (including fair competition between modes

and operators (“level playing field”).

Figure 3.2 – Key elements of a regional VLM strategy

3.3 Implementation Issues In light of the strategy for overload control outlined above, the fundamental issues affecting the implementation of previous proposals are as follows:

(a) Whether or not there is an enabling framework is in place for VLM in terms of: - Vision for VLM in National Transport Plan; - Policy on VLM in National Transport Plan. (b) Whether or not an appropriate strategy is in place for VLM including the

following elements: - Enabling policy framework - Institutional/organisational structures; - Legislation; - Weighbridge Infrastructure and equipment; - Weighbridge management and operations; - Human resources/training; - Public support and cooperation, and


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- Monitoring and evaluation.

(c) Whether or not adequate funding is in place to allow the strategy to be implemented.

The successful implementation of a regional vehicle load management strategy and implementation plan will be critically dependent on the extent to which the above issues are addressed. Failure to achieve any of the above will dilute the effectiveness of the strategy.

3.4 Policy Enabling Framework 3.4.1 Requirements

The elements of an enabling framework for VLM have been presented in Figure 3-1.

3.4.2 Existing situation Issue (a) In many ESA countries there is a lack of an appropriate enabling framework for VLM. Such a framework is not only essential for creating the enabling environment within which the role players in the system can view their roles with respect to VLM but, also, for sending out signals, through its policy principles and objectives, which are translated into the legal, institutional and regulatory frameworks governing VLM.

Issue (b)

There is often neither a coherent Government policy on VLM in place nor a full appreciation in Ministries of Finance of the adverse impact of overloading on the economy. As a result, low priority is given in many countries to the importance of VLM. Issue (c) There is still a lack of awareness in some ESA countries of the Tripartite REC proposals on VLM.

3.4.3 Recommendations Issue (a) All countries that do not have an appropriate enabling framework for VLM should set about establishing one along the lines indicated in Figure 4.1. This should be achieved through a participatory approach involving both public and private sector stakeholders. National issues on VLM should be viewed within a broader regional context and framework in terms of “thinking regionally, acting nationally”

Issue (b)

Where no policy on VLM exists, such a policy should be developed by national public and private sector stakeholders led by the relevant Government ministry. Continuous dialogue should be maintained between political and public stakeholders (e.g. transporters associations) in order to sensitise them to the price that the country is paying for ineffective VLM and to obtain their full support for implementation of an effective VLM policy. In order


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to achieve such support, it is important to quantify and then to highlight to stakeholders the substantial benefits to be derived from implementing such a policy. Issue (c) ASANRA and other similar sub-regional bodies such as FESARTA, FCFASA and FEAFFA, should engender awareness amongst their member states of the existence and importance of the REC proposals on VLM, which should serve as a point of departure for implementation in all countries in all RECs. 3.5 Strategic Element 1 - Institutional Arrangements 3.5.1 Requirements Appropriate supra-national (Tripartite), regional and national institutional arrangements are pre-requisites for effective implementation of agreed strategies on vehicle load management. Ideally, the inter-relationship between the various stakeholder organizations should be broadly as indicated in Table 3-1. The framework provides a structured process by which the ESA region’s vision for vehicle load management can be undertaken in a regionally harmonized manner from the policy stage to implementation and monitoring.

Table 3-1: Institutional arrangements for VLM

Level Function Organizational Body

Organizational Entity

1. Regional Policy

Formulation

Various Tripartite

Heads of State

Council of Ministers

Sectoral Ministerial Committees

Policy

Operational

Standing Committee of officials

Member states

Secretariat o Tripartite Task Force on VLM

2. Sub-regional

Policy

Dissemination

Various Sub-regional

ASANRA

ARMFA

FESARTA

FCFASA, FEAFAA

Corridor Management Institutions

Other regional bodies (e.g PMAESA)

3. NNational

Project

Implementation

Various National

Member states o Gov’t ministries/departments

responsible for policy o Gov’t ministries/departments

responsible for road infrastructure o Gov’t ministries/departments

responsible for law enforcement

As indicated in Table 3-1, one of the key requirements within the existing Tripartite organizational set-up is the establishment of Tripartite Technical Committee on VLM. This body would fall under the Tripartite Task Force and its functions would be as specified below. It would be accountable to, and report to, the Tripartite Committee of Senior Officials on Infrastructure, who in turn are accountable to, and report to, the Tripartite Sectoral Ministerial Committee on Infrastructure.


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The ESA Technical Committee on VLM would typically be comprised of the following organisations / institutions:

Ministries responsible for roads and transport;

Transport regulatory agencies or departments;

CEOs of national roads authorities (or similar bodies including representatives from ASANRA, and similar institutions in other regions, to facilitate cooperation amongst road asset owners;

Ministries or authorities responsible for customs;

The private sector, as represented by FESARTA;

Corridor management groups and committees;

Regional Association of Clearing and Forwarding Agencies. The functions of the Technical Committee on Vehicle Load Management would be to: Develop, monitor and continuously review the effective implementation of harmonised

vehicle load control policies, standards and measures.

Develop model legislative provisions for promulgation by individual member states, including model regulations, schedules and annexes that are required to be implemented in terms of the model legislative provisions.

Develop programmes for training, capacity building and awareness creation amongst stakeholders.

Initiate policies to improve the efficiency of the regional network of weighing stations and any related trade facilitation matters.

Establish a central coordination and data centre for the regional network of weighing stations.

Advice and report to the Tripartite organs on any matter necessary for effective vehicle load control.

Monitor, evaluate and publish regionally consolidated reports on various aspects of vehicle load control.

In addition to the institutional arrangements at Tripartite level indicated above, there will also be a need for appropriate institutional arrangements at national level. In this regard, the following are indicative requirements: A dedicated VLM enforcement unit, who preferably reports to the authority responsible

for the management of roads;

Oversight by the authority responsible for the management of roads (whether a department of state or a parastatal organisation); and

The inclusion of the private sector through either a public-private-partnership or through contracting the overload control functions out.

3.5.2 The existing situation There are currently no over-arching arrangements at Tripartite level for effecting policy coordination and management of VLM requirements. Thus, the need for the establishment of a Tripartite Technical Committee on VLM is of paramount importance.


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At national level, many of the institutional arrangements that exist in some countries are not commensurate with the developments that have taken place in VLM and with the advances that have occurred in weighbridge infrastructure technology. For example, the existence of a Weighbridge Unit within a Maintenance Division of a Roads Department manned by relatively junior technical staff may have been adequate for the operation of fairly simple, manually operated scales. However, the use of relatively expensive, state-of-the-art, computerised weighbridge equipment requires more substantial institutional structures and higher calibre, trained and qualified staff. 3.5.3 Recommendations In view of the inadequacy of institutional arrangements at both regional and national level for undertaking VLM in a harmonised, efficient and effective manner, it is proposed that the institutional arrangements outlined above are given urgent consideration by the Tripartite Technical Committee Force on VLM as, without them, the ability to implement a coordinated regional strategy will be seriously jeopardized. It will also be necessary to assess the adequacy of existing national institutional arrangements for effective VLM and to upgrade them as necessary. 3.6 Strategic Element 2 - Legislation and Regulations 3.6.1 Requirements The achievement of a regionally harmonized approach to overload control in the ESA region requires that, in principle, the legal requirements be also harmonized. Such requirements can be based on those developed recently for the EAC, acting on behalf of the Tripartite members, and included in the EAC Vehicle Load Control Act, 2013 that was approved by the EAC Multi-sectoral council of Ministers at a meeting held in Nairobi on 17th February 2012.These legal instruments embody the regional vision for VLM including the latest developments as outlined in Section 2.3.1. The list of draft regulations embodied in the proposed VLM Act for adoption in the ESA region are presented below. PART I: PRELIMINARY PROVISIONS

1. Citation 2. Interpretation

PART II. VEHICLE LOAD CONTROL

3. Mandatory Weighing of vehicles 4. Exemption of Mandatory Weighing of Vehicles 5. Liability for Overloading 6. Detention of Overloaded vehicle 7. Payment of Overloading Fee 8. Owner/Operator Responsible for Detained Vehicle of Cargo 9. Measures Relating to Live, Dangerous or Hazardous Cargoes 10. Overloaded vehicle May Proceed Upon Payment of Excess fee 11. Bypassing of Weighing Station 12. Customs Officer May Demand Weighing Certificate 13. Frequent Overloaders 14. Demerit Points System 15. Administrative Sanctions


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16. Offences PART III. ABNORMAL LOAD

17. Abnormal Load Permit 18. Particulars to be Provided 19. Consideration of Application 20. Transportation of Abnormal Load 21. Exemption from Permit Requirements PART IV. WEIGHING STATIONS AND WEIGHING EQUIPMENT

22. Power to Erect Weighing Stations and Conduct of Weighing Operations 23. Use of Fixed and Portable Scales Authorized 24. Authorization of Scales 25. Verification and Calibration of Scales and Devices 26. Accreditation of Weighing Stations, Audits and Random Inspections 27. Interconnectivity of Weighbridges PART V: WEIGHING OPERATIONS

28. Setting of Scale 29. Manner in Which Weighing is to be Conducted to Determine Axle and Axle Unit Mass 30. Manner in Which Weighing is to be Conducted to Determine Vehicle or Combination Mass 31. Voluntary Compliance 32. Certificate of Approval 33. Printout Certificate

The key elements of the regulations include:

(1) Standardized vehicle and axle/axle unit load limits as follows:

Steering: Single 8,000 kg Non-steering Single Single tyres 8,000 kg Dual tyres 10,000 kg Tandem Single tyres 16,000 kg Dual tyres 18,000 kg Tridem Single tyres 24,000 kg Dual tyres 24,000 kg

(2) Permissible maximum combination mass: 56,000 kg (3) Introduction of a common Bridge Formula as follows:

P = 2,100 × L + 18,000 Where P = Permissible mass (kg), and L = distance (m) between the centres of the outer axles of any group of consecutive axles

(4) Mass tolerance: 5% on axle and axle units. No tolerance on vehicle GVM/GCM. (5) No use of quadrem axle units. (6) Only one axle or axle unit per semi-trailer. (7) Lift axles accepted if accompanied by a “dead man’s” switch, or on air suspension, or

with automatic drop-down when loaded.


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(8) Mass limits for axles fitted with “super single” (wide-based) tyres to be 8.5 tonnes for 385/65R22.5 tyres, provided weighbridge software can be programmed to detect them.

(9) Tag axles to be treated as part of an axle unit, but should be weighed separately. (10) Interlinks (truck-tractor plus two semi-trailers) to be accepted on designated routes

throughout the region provided that they have no more than two articulation points and a maximum length of 22 m.

(11) Weighbridge calibration and verification intervals to be no longer than 12 months with

interim routine checks. (12) Auditing of weighbridge operations to be carried out at least annually. (13) Implementing a of a regionally harmonized data management system. (14) Overloading offences to be decriminalized and replaced with an administrative system

incorporating economically-based fees based on the recovery of road damage costs. (15) The adoption of a “Chain of responsibility” concept in which the driver, the owner of

the vehicle and the consignor and the consignee are severally responsible for adhering to the vehicle load limits.

(16) The introduction of the “security bond” principle as a means of addressing the

problem of non-payment of fines by foreign operators. (17) Making absconding from a weighing station a separate offence. (18) Introducing special measures to target frequent overloaders or the same offender

within specified time periods. As would be apparent from the above, the new range of regulations provides a comprehensive framework which expands the range of enforcement measures traditionally adopted to control overloading.

3.6.2 Existing Situation The legislation dealing with overload control in many ESA countries is generally inadequate and outdated and there are many examples of lack of harmonization, for example, with regard to vehicle load limits, procedures for weighing vehicles, etc. Not surprisingly, therefore, the current systems generally fail to achieve the primary goal of preserving road infrastructure. 3.6.3 Recommendations There is now a clear need to harmonize the legal requirements for VLM in the ESA region based in large part on the EAC Vehicle Load Control Act and Regulations of 2013. The legal instrument that is proposed is a Memorandum of Understanding (MOU) between the Tripartite Members with the objective of establishing a binding commitment between the Parties to implement the resolutions of the meeting of Ministers that took place in Swakopmund in 2009. The Parties must undertake to file their existing legislative framework with the Tripartite within a period of 90 days after the commencement of the agreement and further to this, have to take the necessary steps to amend their domestic legislation within a period of one year. The Parties must amend their legislation, for which an amendments “checklist” is provided in an Annexure to the agreement.


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The multilateral agreement is based on the premise that the Ministers in COMESA, EAC and SADC, responsible for transport [….] took decisions at various dates, (SADC- 15 May 2009 in Swakopmund, EAC…..COMESA…..) on harmonised legal load limits and the overall length of vehicles, as well as a decision on the types of axles and axle units to be allowed. The decisions also make provision for the filing of deviations from these limits.

It is envisaged that the following key activities will need to be undertaken to facilitate the eventual implementation of effective legislation in all countries:

The parties to the Tripartite must agree to the minimum contents for an overload control regulatory framework by way of a multilateral agreement.

The agreement to the contents of the checklist must contain an implementation framework that is binding, realistic and reasonable, and provides for incremental implementation in accordance with a guideline annexed to the agreement.

The agreement will need to provide for countries to file deviations from the checklist with the Tripartite, so that countries are aware of deviations from that minimum content in other countries.

The establishment of the Technical Committee on VLM (as in the EAC Act ) should form

part of the principles of the agreement.

Member Countries should be required, in terms of the agreement, to file their vehicle load management regulatory framework with the Tripartite within a specific timeframe.

3.7 Strategic Element 3 - Weighbridge Infrastructure and Equipment 3.7.1 Requirements

Effective and efficient vehicle weight control operations in the ESA region require the following:

The selection of appropriate types of static weighbridges and portable/mobile scales for enforcement purposes.

The adoption of an appropriate layout of the weighbridge facility.

The development of a network of overload control stations located at strategic points on the main regional corridors ESA road network.

Types of weighbridges: As indicated in Table 3-2, there is a wide choice of various types of weighbridge equipment that may be considered for determining vehicle axle and GVM loads. They include fixed weighbridges, mobile weighbridges, axle pad systems and weigh in motion systems comprising of high speed and low speed weigh in motion (WIM) systems.


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Table 3-2: Weighbridge types and characteristics

Type of weighbridge

Method of weighing

Fixed Weighbridges Mobile Weighbridges

Easy to operate

Minimum personnel

Cargo off-loading

High installation costs

Limited placement

Wide coverage

Difficult site selection

High operating costs

Equipment easily damaged

Police cooperation

Traffic disruption

Static More precision

Accepted for legal enforcement

Slower (esp. single axle scales)

Easiest to operate

Highest level of precision

Can weigh and register axle units

Lowest investment

Optimal for enforcement

Dynamic

(WIM)

Rapid monitoring

Lower precision

Generally not acceptable for enforcement

Fast for monitoring

Requires large installation

Requires careful direction of vehicles

Minimum disruption of commercial traffic

Lowest accuracy

Excellent for statistical monitoring

Choice of weighbridge: The appropriate choice of weighing equipment will depend primarily on the objective of the weighing exercise in terms of whether it is for legal enforcement or screening purposes and the volume of commercial traffic to be weighed. Ultimately, a type/combination of equipment should be chosen with the required weighing accuracy for the purpose intended and, also, with the aim of minimizing disruption to commercial traffic flow, for example, by the use of WIM devices. Due to the inherent inaccuracy of single axle weighers, they will no longer be used for enforcement purposes but, possibly, only for screening purposes. Vehicles found to be overloaded on this type of equipment should then be escorted to a fixed scale. Table 3.3 provides guidance on the type of weighbridge that is most suited for handling various heavy vehicle traffic volumes on different road classes.

Table 3.3 – Type of weighbridge in relation to heavy vehicle traffic volumes and road class

Weighbridge Type Traffic Volumes (Heavy vehicles/day)

Road Class

Multi Deck Scale (Both sides of road) > 4 000 A - International – Primary

Multi Deck Scales (One side of road) 1 000 – 4 000 B - National – Primary

Axle Unit scale (one side of road) 500 – 1 000 C – Secondary

Layout and type of weighbridge facilities: The layout of a weighbridge facility can vary considerably depending on a variety of factors including:

Purpose of the facility

Prosecution of overloaded heavy vehicles

Screening heavy vehicles only

Screening and prosecution of heavy vehicles

Volume of heavy vehicles to be weighed The types of facility that can be considered in the ESA region in relation to the factors indicated above include:

Full Traffic Control Centre (FTCC)


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Type 1 Traffic Control Centre (TCC 1)

Type 5 Traffic Control Centre (TCC 5)

Lay-by Control Centre (LCC)

The cost of the weighbridge facility will vary in relation to the its layout as indicated above with FTCCs being the most expensive and only being justified on the most heavily loaded commercial vehicle routes. An example of a FTCC is presented in Figure 3-3.

Screening lanes

Main road

Screening Lane

Main Road

Figure 3-3: Typical layout of a FTCC facility (showing only one side of the road)

Location and number of weighbridges: In order to ensure that the available resources for overload control are utilized in a cost-effective manner, it is important to adopt an appropriate strategy for deciding on the location and number of weighbridges that should be deployed along the national road network. At one extreme, a strategy which seeks to eradicate overloading by locating numerous weighbridges along as many routes as possible will be extremely costly and un-cost effective. Figure 3-4 presents a conceptual, high level, planning process for ensuring a coordinated approach to overload control and the determination of the optimum location of capture points.


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Figure 3-4: High level planning of weighbridge network facilities

3.7.2 Existing Situation

The adequacy of weighbridge infrastructure currently deployed on national road networks in the ESA region varies significantly. In some countries, this infrastructure is either insufficient, in terms of providing adequate coverage of national road networks, or inadequate in terms of being either unreliable/inaccurate or non-functional. In contrast, in some other countries, state-of-the art FTCC facilities are being established. What is of concern is that, in the absence of a regional weighbridge location plan, expensive weighbridges may be being installed in non-strategic locations along regional corridors.

3.7.3 Recommendations

In view of the existing situation described above, the following recommendations are made for the consideration at policy/operational level by the proposed Tripartite Technical Committee on Vehicle Load Management and thereafter disseminated/implemented via the appropriate bodies at sub-regional and national level (ref. Table 3-1).

Any future planned investment in weighbridge infrastructure should be undertaken in the context of a regional weighbridge location plan covering all strategic points on regional corridor routes from the gateway port to origin/destination on the regional trunk network. The development of such a plan is an urgent priority.

When new border facilities are being planned, provision should be made for not only locating the weighbridge within the customs area but, also, for sharing the weighbridge facility between the adjacent countries in a one-stop border post (OSBP) arrangement.


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Location of weighbridges in ports, inland container depots and freight stations and the role of authorities managing ports, inland container depots and freight stations in Vehicle Load Management should defined and enhanced as these are critical nodes for the enforcement of VLM standards and regulations.

Careful consideration should be given to selecting the most appropriate type of equipment and choice of weighbridge facilities in relation to such factors as the volume of commercial traffic to be weighed.

As far as possible, weighbridge equipment should be standardised, or at least harmonised, on the main corridors of the region in order to facilitate training activities.

Each country should undertake an inventory of its weighbridge stock in order to determine its future requirements in relation to the regional weighbridge location plan.

3.8 Strategic Element 4 - Weighbridge Operations and Management 3.8.1 Requirements

In order to undertake the operation and management of weighbridges in a proper manner the following requirements are necessary:

Accreditation, auditing and random inspections of weighbridge stations.

Execution of harmonised weighbridge operations and maintenance manuals.

Issuance of a regionally recognized weighbridge clearance certificates.

Promotion of self-regulation arrangements with certain transporters.

Electronic linking of weighbridges to each other and to a central control facility

Verification and calibration of weighbridges at least every 12 months depending on traffic.

Application of regionally agreed weighing tolerances for axles and GVM.

Implementation of a Weighbridge Information Management System for national and possible regional sharing of information.

In terms of the management of weighbridges, careful consideration needs to be given to the following typical options available for undertaking the above aspects of weighbridge management are: In-house operations: In this option, the Roads Agency takes full responsibility for the

operational management of weighbridge facilities. However, historically, for a variety of reasons, this arrangement has generally not been very effective or efficient in the southern African region. Moreover, many of the weighbridge facility operations are generally not considered to be core functions of a Roads Agency and, in principle, should be contracted out to the private sector either as a commercialized or privatized operation.

Private sector operations: In this option, the private sector may be appointed by the Roads Agency to carry out some or all of the operational management responsibilities listed above – in essence, a public-private partnership (PPP). Various PPP arrangements may be considered, each with their advantages and disadvantages.

The range and characteristics of the various contract types through which the private sector can become involved in the operational management of weighbridge facilities is summarized in Table 3-4.


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Table 3-4: Summary of private sector involvement options in VLM

Item Service

Contract Management

Contract Lease

Contract Concession

Contract Full

Privatization

Ownership Public Sector Public Sector Public Sector Public Sector Private Sector

Financing Fixed Assets

Public Sector Public Sector Public Sector Private Sector Private Sector

Financing Working Capital

Public Sector Public Sector Private Sector

Private Sector Private Sector

Duration Short (1–3 yrs)

Short (5 yrs)

Medium (6–10 yrs)

Long (20–30 yrs)

Indefinite

Risk Public Sector Public Sector Public Sector Shared Private Sector

Remuneration of Private Sector

Operation and management (O&M) costs

O&M costs

O&M costs and working capital

O&M costs, working capital and financing of fixed assets

The option that could be chosen for a particular overload control operation will, among others, depend on the following:

financing of fixed assets; financing of working capital; financing of maintenance; extent to which risk is shared between the public and private sector; and remuneration of the private sector.

3.8.2 Existing Situation Current weighbridge operations in many ESA countries are deficient in a number of respects including: There are no operations and maintenance manuals with the result that weighing

operations are carried out in an inconsistent manner and there are reported frequent breakdown of scales due to lack of spares.

Weighbridge stations are not networked and there is limited analysis, reporting and sharing of

information on overload control at national level and none at regional level.

There is no mutual recognition of weighbridge certificates amongst ESA member states. Calibration of weighbridges is not carried out in a rigorous manner, including the

provision of a certificate of calibration – which, subject to proper prior verification of the weighbridge, legalizes the output of the weighing operation.

The quality and extent of data that is collected at weighbridges varies enormously

amongst ESA countries and what is collected is not shared on a regional basis.


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As regards the manner of undertaking weighbridge operations, increasing recourse is being made in some ESA countries to the involvement of the private sector utilising so far service, management and lease types of contract. 3.8.3 Recommendations In view of the existing situation described above, it is recommended that the various aspects of operation and management of weighbridges indicated in Section 3.8.1, including contract options for involving the private sector, are considered at policy/operational level by the Tripartite Technical Committee on VLM. Thereafter, in order to ensure mutual recognition by all ESA countries, they should be included in the Tripartite MoU on VLM for subsequent dissemination/implementation via the appropriate bodies at sub-regional and national level (ref. Table 3-1). 3.9 Strategic Element 5 - Human Resources and Training 3.9.1 Requirements The efficient and effective control of overloading utilizing increasingly sophisticated and relatively expensive equipment requires well-trained and experienced staff conversant with a wide range of related disciplines including the following:

Transport environment Legislation and regulations Weighbridge equipment Weighing operations Software operation Data management Management reporting Staff management Operations management Maintenance management Safety.

In view of the above, it should be mandatory for all weighbridge personnel to follow a prescribed training course so that they are able to perform their duties satisfactorily in terms of ensuring that the applicable weighing procedures are followed and overload control regulations are applied correctly. In a regional context, training should be carried out in a coordinated manner in order to ensure uniformity across all countries.

3.9.2 Existing Situation There is currently little formalized training that is carried out in many ESA countries. What is carried out tends to be provided in-house in an ad hoc manner by the authority concerned. As a result, the quality and competence of the weighbridge staff is variable and overload control operations are generally not carried out effectively and efficiently in many countries. It is apparent, therefore, that the quality of training in overload control operations in the ESA region needs to be enhanced to cater for the increased complexity of modern-day weighbridge operations. Staffing levels will also need to be increased in some countries to provide the full complement required at each weighbridge station. 3.9.3 Recommendations


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It should be mandatory for all weighbridge personnel to follow a prescribed training course so that they are able to perform their duties satisfactorily in terms of ensuring that the applicable weighing procedures are followed and overload control regulations are applied correctly. In a regional context, training should be carried out in a coordinated manner in order to endure uniformity across all countries. This would best be achieved by the establishment or designation of a regional training centre/s which offer/s the following significant advantages: Provision of a facility for which there is much demand by a large number of countries in

Eastern and Southern Africa, some of which would find it very difficult to provide adequate facilities at national level;

Adoption of a common syllabus that would ensure consistency in all aspects of training in overload control as well as mutual recognised qualifications ;

Achievement of economies of scale and cost-effectiveness derived from the avoidance of provision of duplicative facilities and staffing at national level.

It is also recommended that consideration be given by the Tripartite Technical Committee on VLM to the following modular training syllabus that was prepared for EAC countries as part of the “Preparation of a transport facilitation strategy for the East African Community (the BICO Report, October 2012).

Module 1: Introduction (background, transport corridors, road transport, overload control). Module 2: Legislations and Regulations on Overload Control. Module 3: Vehicles Dimensions, Combination, and Axle Configurations. Module 4: Traffic Management Centres and Weighbridge Equipment. Module 5: Screening and Weighing Operations. Module 6: Administrative Procedures and Prosecutions. Module 7: Introduction to types of weighbridge software. Module 8: Environmental pollution, Workplace safety, Customer service and Work ethics. Module 9: Practical Training.

3.10 Strategic Element 6 - Public Awareness and Support 3.10.1 Requirements For any legislation to succeed, there is a need for the cooperation of all stakeholders who should be made fully aware of the adverse implications of overloading on the national economy and the benefits to be derived from adhering to the requisite regulations contained in the proposed Act and Regulations on VLM. To this end, it is often necessary to mount and sustain an appropriate public awareness campaign for which the following would typically be the target audience.

Local courts; Public prosecutors; Transporters; Consigners and consignees; Drivers; and


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Weighbridge staff. 3.10.2 Existing Situation There is still a general lack of awareness amongst the public at large, and to some extent, amongst transporters in some ESA countries, about the need for VLM and the negative effects of overloading on the national or regional economy. However, with the increasing involvement of such stakeholders in regional meetings where overload control matters are discussed, they are becoming increasingly conversant with the importance of vehicle overload control and, as a result, have generally become more cooperative towards the introduction of an improved overload control regime in the ESA region. 3.10.3 Recommendations

Notwithstanding the increasing stakeholder awareness of VLM matters, it is recommended that this be reinforced by the mounting of a properly conceived Public Awareness Campaign in all ESA countries to win public support for the new VLM procedures to be embarked upon in the near future. Such a campaign could include: Awareness pamphlets and posters; Electronic print and media; Installation of billboards at critical locations on the road network (see photo below); Periodic seminars and press conferences; and “Naming and shaming” habitual offenders.

3.11 Strategic Element 7 - Monitoring and Evaluation

3.11.1 The Requirement Appropriate performance indicators are required to monitor and evaluate the efficiency and effectiveness of VLM operations in the ESA region. Such indicators provide a baseline against which the extent of overloading can be monitored and corrective action taken where necessary, to improve VLM operations and management.

3.11.2 The Existing Situation Performance Indicators have not yet been established for monitoring the effectiveness of vehicle weight control operations in the ESA region. 3.11.3 Recommendations Carefully selected, and relatively simple performance indicators, should be developed to monitor and evaluate vehicle weight control operations in the ESA region. This will entail, at least, the following activities: Establishment of an axle load baseline survey to determine the existing situation prior to

the introduction of the new Act and regulations.

Establishment of yearly axle load surveys to provide […] data for determining trends in overloading.


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4. IMPLEMENTATION PLAN AND COSTS

4.1 Introduction This chapter presents a prioritised Implementation Plan and Budget aimed at putting in place a policy, legal, regulatory system and institutional framework for overload control standards and regulations for countries and includes a timeline and budget. Transport facilitation in the Tripartite region is characterised by a multiplicity of stakeholders-policy makers, regulators, infrastructure developers, cross border freight and passenger transporters- across 26 states which in essence separate legal jurisdictions. In order to ensure effective implementation of the Vehicle Load Management Strategy it is essential to have a common Strategy and Implementation Plan.

4.2 Implementation and Coordination Mechanisms

The COMESA, EAC and SADC Treaties provide the legal, policy, and institutional frameworks to guide and support the region to achieve its goals and objectives of regional cooperation and integration. The treaties are supplemented by protocols and corridor agreements. The legal and institutional frameworks in the REC and corridor agreements provide the basis for decision-making and action, and determine the operational environment of the vehicle load management policy and strategy. At Tripartite level the Heads of States have signed agreements that provide the legal and institutional framework for joint, common and inter-REC programmes. The institutional arrangements proposed under Strategic Element 1 – Institutional Arrangements, will operate under this framework.

4.3 Principles for VLM Implementation

The Principles for VLM Implementation are derived from the principles applied by REC in implementing regional programmes and projects:

(i) Subsidiarity: The management of programmes of the RECs adopts the principle of

subsidiarity, whereby all programmes and activities are carried out at the lowest levels. Therefore, promoted and encouraged are the involvement of institutions, authorities, and agencies at regional, corridor and member state levels, to initiate and implement VLM programmes using their own institutions and generated resources. This ensures that the role of the REC Secretariat is most efficiently utilised for policy development and harmonisation, as well as programme coordination and management.

(ii) Variable geometry: The implementation of the Tripartite programmes allows special

consideration for some Member States to move faster on certain activities, thus providing opportunities for Member States to replicate the experiences of others.

These implementation principles are necessary for effective implementation of the VLM strategy and programmes, because they are the basis for establishing the acceptance, trust, and commitment of the Member States, and for a common understanding of the fundamental interactions, functions, and roles of the various Tripartite structures.


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4.4 Policy and Oversight for Implementation of VLM strategy

The key institutions that provide policy direction and oversight to the implementation of the VLM strategy are 4.4.1 Regional level Tripartite Summit of Heads of State or Government; Council of Ministers; Sectoral Ministerial Committees;

Standing Committee of Officials; and

The Tripartite Task Force made up of the three REC Secretariats.

4.4.2 Member state level, Ministries or Government department responsible for policy; Government agencies/departments responsible for road infrastructure and road transport;

Transport regulatory agencies or departments

The national associations of commercial freight and passenger companies that undertake regional transport services; and

Associations of clearing and forwarding agencies.

Associations of clearing and forwarding agencies, road transport operators, port authorities and road agencies.

4.4.3 Corridor level The public and private sector partners Corridor Secretariats

4.5 Roles and Responsibilities of Key institutions The following are the functions, responsibilities, and roles of the key institutions: 4.5.1 The policy level

i. The Tripartite Summit of Heads of State and Government At the political level, the Tripartite Summit has supreme powers of policymaking, and is responsible for the overall policy direction and control of the functions of the Tripartite. It also adopts legal instruments for the implementation of the provisions of the Treaty.

ii. The Council of Ministers The Council of Ministers approves the Tripartite policies and oversees the implementation of those policies by the Tripartite Sector and Cluster Ministers. Specifically, the Council responsibilities are to:

Oversee the functioning and development of the Tripartite and the proper execution of its programmes;

Advise the Summit on matters of overall policy and efficient and harmonious functioning and development of the Tripartite;

Approve policies, strategies and work programmes of the Tripartite;

Direct, coordinate and supervise the operations of the subordinate institutions of the Tripartite;

Recommend, for approval to the Summit, the establishment of directorates, committees, other institutions and organs; and


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Develop and implement the Tripartite Agenda and strategic priorities.

iii. The Sectoral and Cluster Ministerial Committees The responsibilities of the Sector and Cluster Ministerial Committees are to:

Oversee the activities of the core areas of integration, including monitoring and control the implementation of the Tripartite programmes in their areas of competence;

Provide policy advice to the Council in their areas of competence; and

Take decisions to ensure rapid implementation of programmes approved by the Council with respect to their responsibilities.

4.5.2 The operational level The operational level involves the Standing Committee of Officials, the Member States, and the Secretariat. i. The Standing Committee of Officials/Senior Officials The Standing Committee of Officials, assisted by the relevant technical committees in their areas of expertise, serves as a technical advisory committee to the Council of Ministers. It processes documentation from the Sectoral Ministerial Committees to the Council.

ii. The Member States The Member States participating in the Tripartite programmes have the responsibility of ensuring programme success and post-programme sustainability. Member States are central to the implementation of the VLM Strategy, and their responsibilities are to: Designation, through the law, an agency or department that will be responsible for

implementation of national VML strategy.

Domestication of regional agreements into national laws and regulations;

Development, implementation, funding and monitoring of national VML strategies and plans;

Ensure broad and inclusive consultations for national input at the Member State level;

Coordinate and mobilise national consensus on issues of regional importance;

Provide critical inputs into regional VLM policy and strategy formulation taking into consideration the peculiarities and interests of particular Member States;

Ensure the harmonisation of national with regional policies, and the streamlining of VLM Strategy activities into national development plans;

Create national steering and technical committees to ensure rapid implementation of programmes; and

Produce and submit reports to the Tripartite Task Force.

iii. The Secretariat The Tripartite currently has no separate Secretariat. It coordinates its work though the Tripartite Task Force (TTF) made up of the three CEOs of COMESA, EAC and SADC Secretariats. These are supported by sub committees and the relevant one is the Infrastructure Sub Committee. The TTF executes its work through the three Secretariats either though agreed division of labour or by designating one of them as lead REC on a given programme. SADC has been the lead REC on VLM initiative. The TTF is the principal executive institution of the Tripartite, and has overall responsibility for the day-to-day management, coordination, and implementation of the Tripartite VLM strategy and programmes through:


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The review and continuous updating of the VLM Strategy and Implementation Plan;

Institutional coordination of the various actors;

Programme coordination to ensure adequate interface and synergies between different outputs and activities;

Harmonisation of policies and programmes and submitting them to the Council for consideration and approval;

Coordinating the participation and contributions of Member States;

Liaison with sponsors (the Member States and the International Cooperating Partners) for ensuring that funds utilized produce the required results;

Monitoring and evaluating the implementation of regional policies and programmes;

Coordinating and supervising Implementing Agents to ensure the timely submission of progress reports; and

Reporting implementation progress to the Sector Ministers and the Council.

4.5.3 Other institutions relevant to the implementation of the VLM strategy (a) ASANRA One of the key aims of the Association of Southern African National Roads Agencies (ASANRA), whose membership includes the CEOs or equivalent of road authorities in the SADC region, is to foster the development, operation and maintenance of a region-wide integrated transport system. This is achieved by cooperating with SADC agencies in considering matters of mutual interest in serving the region’s highway needs. In this regard, the organization has a potentially crucial role to play in VLM by not only disseminating the regionally agreed strategy but, also, in monitoring its implementation within SADC countries. (b) FESARTA The Federation of East and Southern African Road Transport Associations (FESARTA), which represents a very large number of transporter in the ESA region, is actively involved in appropriate legislative or other measures to improve the efficiency of regional transport services through national governments, COMESA and SADC. In this regard, it plays a crucial role in helping to formulate, disseminate and monitor implementation of VLM strategy amongst its members

(c) FCFASA/FEAFFA Both the Federation of Clearing and Forwarding Associations of Southern Africa (FCFASA) and the Federation of East African Freight Forwarding Associations (FEAFFA) provide support to their members to meet industry challenges and to be the dialogue partner of its identified stakeholders in the southern and east African supply chain, including the Committees of Heads of Customs administrations and such multilateral bodies as COMESA and SADC. In this regard, they can be considered as being part of the “chain of responsibility”, together with transporters and consignees, in ensuring that VLM regulations, particularly vehicle load limits, are complied within the region.

4.6 Challenges in the Implementation of the VLM Strategy and Implementation Plan The implementation of the VLM Strategy and Implementation Plan depends on effective implementation of the above-mentioned principles, and the availability of capacity at both the regional, corridor and national levels. In line with the above arrangements, the major challenges faced in the implementation of the VLM Strategy and Implementation Plan include:


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i. Inadequate capacities at both the Member State and Secretariat levels. ii. Non-alignment of Member State national development plans with the priorities of the

Tripartite VLM Strategy and Implementation Plan. iii. Low levels of Member State ratification and domestication of transport protocols. iv. Low levels of Member State compliance with community obligations. v. Undeveloped community enforcement mechanisms (including low level of utilization

of the provisions of the Treaties). vi. Insufficient coordination of the implementation of common and joint Tripartite

strategies and programmes. vii. Undeveloped monitoring, analysis, reporting, and review systems. viii. Overreliance on donor funding for implementation of the programmes. ix. Complexity of applying regional legislation in different countries with different legal

systems and the fact that some countries have different spheres of government with concurrent legislative powers over roads and road traffic.

4.7 Strategies for Implementation of Tripartite VLM Strategy and Implementation Plan 2015-2020 Priorities The successful implementation of the Tripartite VLM Strategy and Implementation Plan depends on the different structures’ effective execution of their functions and responsibilities. Short-term interventions aimed at improving domestication of the VLM Memorandum of Understanding; implementation focus on institutional strengthening; improved accountability; and enhanced legal oversight over regional cooperation and integration. The strategies for the implementation period (2015-2020) are:

a) Domestication of the Tripartite VML Memorandum of Understanding. This is the

precondition for each member state to implement the harmonised VML programme. It is the sin qua non without which there can be no regional harmonisation in the Tripartite. This has been the main reason for the slow pace of progress. This process needs to be facilitated by the provision of technical assistance that would provide model regulations and guidelines and assist national units responsible for legal drafting, line ministries and government department and agencies in the required legal reforms and institutional development.

b) Develop national VML strategies and plans. To ensure effective coordination at national level and synchronisation at regional level, it is imperative that each and every member state and corridor institution develop, implement and monitor VML strategic plans.

c) Capacity development at the level of the Member States through strengthening the government agencies responsible for VLM, in order that they gain capacity to undertake responsibilities for domestication of VLM agreements, consultation and representation of all stakeholders, spearheading national efforts relating to regional cooperation and integration, and providing a linkage between the Member States, Corridor institutions and the REC Secretariat (s).

d) Improve the alignment between regional and national VLM priorities. Whereas priorities

at the regional level should be mainstreamed into national development activities, the


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regional programmes should reflect Member States’ important concerns. This will be achieved by enhancing engagement of National Planning Agencies at Member States level, including consideration for establishing a regional mechanism for engagement.

e) Develop legal/policy framework/guidelines to improve Member States’ implementation of VLM programmes and projects. This will involve strengthening monitoring and reporting on the implementation of the various Protocols, MOUs and other legal instruments for achievement of the VLM initiatives. This will also require developing an enforcement mechanism to promote the implementation of Member States’ commitments. The mechanism should link the commitments to any complimentary programmes that have been agreed by the region".

4.8 Implementation Plan The inputs to the implementation plan have been derived from the projects identified in Section 3 under each of the seven key elements of the VLM described therein. The Implementation Plan is presented in Annex 3 and covers the following headings:

Policy enabling framework

Legislation

Institutional Arrangements

Weighbridge Infrastructure and Equipment

Weighbridge Operations and Management

Human Resources and Training

Public Awareness and Support

Project Monitoring and Evaluation

4.9 Proposed Approach to develop Tripartite VLM Strategy and Implementation Plan and Budget (2015-2020) 4.9.1 Key Steps Step 1: Validate the Draft VLM Strategy and Implementation Plan and Roadmap at the technical workshop on 10-11 November 2014 in Gaborone, Botswana by all member states and other stakeholders. Step 2: Tripartite Senior Officials to adopt Draft VLM Strategy and Implementation Plan and Roadmap at the meeting on 12th November 2014 in Gaborone, Botswana. Step 3: Update Draft VLM Strategy and Implementation Plan by refining draft based on inputs from Member States after the Senior Officials Meeting on 12 November 2014 and before the planned Ministerial meetings in 2015. Step 4: Cost the proposed activities and develop a budget and resource mobilization strategy. The costing aspect should be compared with available resources in order to identify the resource gap that should be used as a basis for mobilizing sustainable resources, both internal and external, to finance VLM Strategy and Implementation Plan at national, corridor, and regional levels for the next five years-2015-2020.


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Step 5: Consult on, consolidate and submit VML Strategy and Implementation Plan and Budget and Roadmap for approval by Ministers.

4.9.2 Who Does What The COMESA, EAC and SADC Secretariat will coordinate the above in consultations with member states and other key stakeholders and cooperating partners. The timelines to achieve the above, as well as other key requirements referred to below, are outlined in the draft road map in Annex 1 whilst the Draft Tripartite VML Strategy and Implementation Plan, (2015-2020) is presented in Annex 3. A questionnaire has been developed for data collection and is attached as Annex 2. The questionnaire will be administered at the technical workshop for completion by each country delegation. Depending on responses the questionnaire will be circulated to selected countries who either would not have completed it adequately or those who may have failed to attend the technical workshop and Senior Officials meeting from 10-12th November 2014.


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Annex 1: Draft Road Map for the finalisation of VLM Strategy and

Implementation Plan and Budget, November 2014 – March 2015

S# Output Activity Time-frame Lead

Responsible

Entity

1 Draft road map presented and adopted by Senior Officials

Discuss draft road map and provide further guidance

By 12 November. 2014

Secretariats

2 Draft Indicative VML Strategy and Implementation Plan and Budget reviewed and updated

Update inputs on draft received from MS

Nov 2014 SADC Secretariat

Convene VML technical workshop and meeting of Senior Officials

10-12 Nov 2014

Secretariats/EU

Consolidate draft with inputs from Snr Officials

12-20 Nov 2014

Secretariats

3 Indicative Draft VML Strategy and Implementation Plan 2015-2020 updated and budget developed

Circulate questionnaire to facilitate national and regional consultations and data inputs for updating of the draft Implementation Plan

20 November. 2014

SADC Secretariat

Populate template VML Plan 2015-2020 Implementation Plan and Budget

15-20 Dec. 2014

SADC Secretariat / Representatives from Member States and other stakeholders

Develop/consolidate Draft VML Plan 2015-2020 Implementation Plan and Cost Estimates from inputs received from the REC Secretariats, Member States and other stakeholders

15-20 Dec. 2014

SADC Secretariat

Review VML Plan 2015-2020 Implementation Plan and Budget

10 Nov. 2015 REC Secretariats

Updated translation of Draft VML Plan 2015-2020 Framework Translate draft VOC Plan 2015-2020 Implementation Plan and

11-25 Nov. 2014

SADC Secretariat


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S# Output Activity Time-frame Lead

Responsible

Entity

Budget

4 Draft Revised VML Strategy and Plan 2015-2020 Implementation Plan and Budget reviewed by appropriate Finance Sub Committee (FSC)

Present draft Implementation Plan and Budget to Tripartite Senior Officials

To be confirmed by rec Secretariats

All REC secretariats

5 Draft Revised VML Plan 2015-2020, Implementation Plan and Budget submitted to Tripartite Council or parallel REC Ministerial meetings for approval

Submit Draft Revised VML Plan 2015-2020 and Implementation Plan and Budget for approval

Feb. 2015 All REC secretariats

6 Draft Revised VML Strategy and Implementation Plan 2015-2020 and Budget edited

Edit and package Draft Revised VML Plan 2015-2020, Implementation Plan and Budget

March 2015 SADC Secretariat


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Annex 2 - Survey questionnaire

"Tripartite (COMESA-EAC-SADC) Workshop and Senior Officials’ Meeting

on

Vehicle Load Management Initiative2”

PRE –WORKSHOP QUESTIONNAIRE

Purpose

(a) This questionnaire is to be completed by each COUNTRY DELEGATION to the Tripartite

Vehicle Load Management Initiative (VLMI) technical workshop AND MEETING OF Senior

Officials.

(b) Delegates should have read BOTH the Draft Tripartite VLMI Strategy and Implementation

Plan and Draft Tripartite Vehicle Load Management (VLM) MoU before completing this

questionnaire. The Draft Strategy and MoU explains some of the concepts and issues referred

to in this questionnaire. They are downloadable at

https://extranet.sadc.int/en/tvoc2014sep

(c) The head of delegation must consult with all members including the private sector and

relevant corridor management institutions when completing this questionnaire. .

(d) The purpose of this questionnaire is to collect information that will establish the current

status of Vehicle Load Management (VLM) policies, laws, regulations, standards, institutions

and operations in the Tripartite member states and corridors.

(e) This information will establish the baseline for assessing the outstanding and required

changes that respective countries need to carry out in order to implement the Tripartite VLM

policies, laws, regulations, and standards, institutional and operational requirements.

(f) The information will be analyzed, collated and used to complete the Draft Tripartite VLMI

Strategy and Implementation Plan

Instructions

(a) Please answer all questions to the best of your knowledge.

(b) Where a YES or NO answer is required, please circle the correct response.

(c) Where an explanation is needed-please be informative

2 The term “vehicle load management” is an all-embracing one which includes not only measures for controlling vehicle

overloading but, also, other related aspects of vehicle load management such as the institutional, legal and operational ones.

https://extranet.sadc.int/en/tvoc2014sep


33

Respondent Information [Head of Country Delegation]

(a) Full Name………………………………………………………………………………………………………………………………..

(b) Designation………………………………………………………………………………………………………………………………

(c) Email address………………………………………………………………………………………………………………………….

(d) Cellphone No…………………………………………………………………………………………………………………………..

(e) Organization……………………………………………………………………………………………………………………………

(f) Country……………………………………………………………………………………………………………………………………

<<<<<<<<<<<<<<<<<<<<<<<<<<<<<<<<<<<<<<<<<>>>>>>>>>>>>>>>>>>>>>>>>>>>>>>>>>>>>>>>>>

Policy Enabling Framework

(a) Which ministry / department is responsible for;

i. National transport

policy?............................................................................................

ii. National / State Roads construction and

maintenance……………………………………………

iii. Vehicle Overload

Control…………………………………………………………………………………………

(b) Does your country have a formal National Transport Policy (NTP)?

YES……………NO

(c) If YES when was the NTP approved?

Year………………..

(d) Does the NTP specifically include a VOC strategy? YES……………NO

(e) National VLM strategy [tick applicable status]

Adopted

Developed but not yet adopted………………………..Give

reason…………………………………………………………………………………………………………………………

Under development

Not yet started developing

Receiving technical assistance in developing VLM strategy……………

If so please state from

whom………………………………………………………………………………………………………………

(f) Do you have national VLM Communication Strategy?


(g) If Yes which department and or agency takes the lead in implementing the

communication

strategy………………………………………………………………………………………………………………………………

…………………………………………………………………………………………………………………………………………

Strategic Element 1 - Institutional Arrangements


34

(a) Do you have a national VLM Advisory body?


(b) If YES; what is its name………………………………………………………………………………………….

(c) State the title of the legislation (Act of Parliament) establishing the VLM

body…………………………………………………………………………………………………………………………..

(d) What is the mandate of the VLM Advisory body?

…………………………………………………………………………………………………………………………………………………

…………………………………………………………………………………………………………………………………………………

………………………………………………………………………………………………………………………………………..

(e) To whom does the VLM Advisory body report? [Tick as appropriate]

Minister

Board of Directors

None of the above……………….If so please explain

…………………………………………………………………………………………………………………………………………………

…………………………………………………………………………………………………………………………………………………

………………………………………………………………………………………………………………………………………………

(f) How is the VLM Advisory body financed? [Tick the appropriate]

Public

Private

Both Public and Private

.......................................................................................................................................................

.......................................................................................................................................................

.......................................................................................................................................................

(g) Do you have a National semi-autonomous Road Agency or Government Department

responsible for road infrastructure construction and maintenance?

……………………………………………………………………………………………………..

(h) If YES; what is its name………………………………………………………………………………………….

(i) State the title of the legislation (Act of Parliament) establishing the Road Agency or

Government Department

…………………………………………………………………………………………………………………………..

(j) What is the mandate of the Road Agency or Government Department?

…………………………………………………………………………………………………………………………………………………

…………………………………………………………………………………………………………………………………………………

………………………………………………………………………………………………………………………………………..

(k) To whom does the Road Agency or Government Department report? [Tick as appropriate]

Minister

Board of Directors

None of the above……………….If so please explain

…………………………………………………………………………………………………………………………………………………

…………………………………………………………………………………………………………………………………………………

………………………………………………………………………………………………………………………………………………

(l) How is the Road Agency or Government Department financed? [Tick the appropriate]

Public


35

Private

Both Public and Private

.......................................................................................................................................................

.......................................................................................................................................................

.......................................................................................................................................................

(m) Under the Road Agency or is it a Government Department do you have a special

unit/department/ section dealing with Vehicle Load Management? YES ……………NO

If it is NOT….please explain

…………………………………………………………………………………………………………………………………………………

…………………………………………………………………………………………………………………………………………………

…………………………………………………………………………………………………………………………………………………

Strategic Element 2 - Legislation

Considering the agreed Tripartite Vehicle Overload Control policies, laws, regulations, standards,

institutional and operational requirements as summarized in the EAC Overload Control Act, Draft

Tripartite MoU and Draft Tripartite Strategy, Please indicate where reforms, changes and new

institutions are required in your country in order to comply with the draft Tripartite MoU on VLM;

i. Policies……………………………………………………. YES………………..NO

ii. Act of Parliament (Law) …………… YES………………..NO

iii. Regulations / statutory instruments……………. YES………………..NO

iv. Standards ……………………………………………………. YES………………..NO

v. Institutions……………………………………………………. YES………………..NO

vi. Weighbridge Operational procedures………… YES………………..NO

vii. Training……………………………………………………. YES………………..NO

viii. Staffing YES………………..NO

Does your country have a National Road Traffic Act and Road traffic regulations? YES……………NO

Has your country formally decriminalized vehicle overload offences by law? YES……….NO

If YES, please state the Act of Parliament (law) that decriminalized Vehicle Overload Control

infringements and offences

…………………………………………………………………………………………………………………………………………………………

………………………………………………………………………………………………………………………………………………….

If NO, please explain why

………………………………………………………………………………………………………………………………………………………………

……………………………………………………………………………………………………………………………………………………

Strategic Element 3 - WB Infrastructure & Equipment

(a) What criteria is used to determine optimal location of Weighbridges in your country?

…………………………………………………………………………………………………………………………………………

…………………………………………………………………………………………………………………………………………

…………………………………………………………………………………………………………………………………………

…………………………………………………………………………………………………………………………………………


36

(b) Are there consultations with neigbouring/adjacent/contiguous states and corridor states

in the process of determining the number and location of weighbridges on sections of

regional transport corridors that traverse your country? YES ……….NO

(c) Do you share weighbridge data and information with neigbouring/adjacent/contiguous

states? YES………NO

(d) Are these data sharing arrangements included in bilateral or corridor agreements?

YES ………NO

(e) Do you have written guidelines on weighbridge specs/selection criteria. YES ………NO

(f) Are weighbridges in your national road network electronically linked?

YES ………NO

(e) Is the number and quality of existing WB stations and equipment adequate YES ………NO

(f) Do you have plans to upgrade WB equipment and install new WBs? YES ………NO

If YES you are required to share these plans with COMESA, EAC and SADC Secretariats.

(g) Do you have weighbridge calibration and verification procedures? YES………….NO

(h) What is that name of the entity that conducts calibration and verification?

.................................................................................................................................

(i) What is the ratio Weighbridges per 1,000 km of paved roads in your country?

....................................................................................................................................................................

Strategic Element 4 -: WB Operations and Management

(a) Do you have guidelines on WB ops & maintenance procedures? YES ………NO

(b) Do you have a fixed assets management plan that includes the buildings for weighbridge

stations? YES…………..NO

(c) Which entity is responsible for WB verification & calibration?

....................................................................................................................................................................

....................................................................................................................................................................

(d) Do you have a computerized VOC Management Info System? YES ………NO

(e) If YES is it linked to a National Transport Information System? YES ………NO

(f) Does the VOC system include an Offences Register / File YES……….NO

(g) Is the VOC system linked with Customs at the land border posts? YES ………NO

(h) Do port authorities –both sea and inland play a role in VOC implementation YES …….NO

(i) If so, please describe the role


37

………………………………………………………………………………………………………………………………………………………………

………………………………………………………………………………………………………………………………………………………………

………………………………………………………………………………………………………………………………………………………………

………………………………………………………………………………………………………………………………………………………………

………………………………………………………………………………………………………………………………………………………………

(j) What is role of the private sector in VLM implementation?

………………………………………………………………………………………………………………………………………………………………

………………………………………………………………………………………………………………………………………………………………

………………………………………………………………………………………………………………………………………………………………

………………………………………………………………………………………………………………………………………………………………

………………………………………………………………………………………………………………………………………………………………

(k) Do you have a road transport self-regulation policy and system? YES ………NO

If YES please give reference of the applicable national legislation and policy that allows self-

regulation

………………………………………………………………………………………………………………………………………………………………

………………………………………………………………………………………………………………………………………………………………

(l) Do you have guidelines and procedures for Auditing weighbridges? YES……….NO

If YES, which entity audits your weighbridges?

....................................................................................................................................................................

.....................................................................................................................................................

Strategic Element 5 – Human Resources and Training

(a) Have you ever undertaken needs analysis of training requirements for VOC? YES ………NO

(b) If YES when………………………….YEAR

© What are the current priority training needs? [Tick applicable]

Management / Administration

Engineering and Technical

Operational

Other……...please indicate

………………………………………………………………………………………………………………………………………………………………

………………………………………………………………………………………………………………………………………………………..

(d) Where do you undertake VOC training?

………………………………………………………………………………………………………………………………………………………………

…………………………………………………………………………………………………………………………………………………………

Strategic Element 6 – Communications, Public Awareness and Support


38

(a) Do you have a VLM Communications and Visibility Strategy? YES ………NO

(b) Who is responsible for implementing the VML public awareness strategy?

....................................................................................................................................................................

....................................................................................................................................................................

Strategic Element 7: Monitoring and Evaluation

(a) Who monitors progress on national VLM strategy implementation?

....................................................................................................................................................................

....................................................................................................................................................................

(b) Which VLM performance indicators do you monitor and track and the frequency?

………………………………………………………………………………………………………………………………………………………………

………………………………………………………………………………………………………………………………………………………………

………………………………………………………………………………………………………………………………………………………………

………………………………………………………………………………………………………………………………………………………………

………………………………………………………………………………………………………………………………………………………………

(c) When did last did you undertake corridor/national baseline axle load surveys? YEAR……………………

(d) Do you have VLM monitoring reports that you can share with COMESA, EAC and SADC

Secretariats? YES ……………..NO.

Please add any other facts, information, comments and observations that will help us understand

the current status of VOC implementation in your country and how you see the impact of your

country implementing the proposed Tripartite VOC Strategy and the EAC Overload Control Act and

the Tripartite MoU.

____________________________________________________________________________

____________________________________________________________________________

____________________________________________________________________________

____________________________________________________________________________

_______________________________________________________________________


38

Strategic Element Year Responsible Entity

Key Performance Indicator 1 2 3 4 5

Policy Enabling Framework

(a) Inclusion of VOC policy in National Transport Plan (NTP) National Ministry of Transport Inclusion of VLM policy in NTP

(b) Inclusion of VOC strategy in National Transport Plan National Ministry of Transport Inclusion of VLM strategy in NTP

Strategic Element 1 - Institutional Arrangements

(a) Establish Tripartite Task Force (TTF) on VLM TTF - VLM TTF-VLM established

(b) Country nomination of representatives to TTF-VLM National Ministry of Transport TTF-VLM representatives nominated

(c) Establish national VLM advisory body National Ministry of Transport VOC advisory body established

(d) Assess adequacy of national WB organization/staffing National Ministry of Transport/RA Report on VOC organization/staffing

(e) Upgrade national WB organization/staffing National Ministry of Transport/RA VLM org/staffing upgraded

(f) Review alternative institutional & financing arrangements National Ministry of Transport/RA Report on alternative institutional /fin arrangements

(g) Adopt appropriate institutional & financial arrangements National Ministry. of Transport/RA New institutional/financing arrangements adopted

(h) Introduce pilot scheme for new inst & fin arrangements National Ministry of Transport/RA Pilot scheme operational

Strategic Element 2 - Legislation and Regulations

(a) Validate/sign/ratify Tripartite MoU on VLM Nat. AG Chambers/Min. Transp/RA MoU validated/ratified/signed

(b) Domesticate Tripartite MoU (Promulgate Act & Regs) Nat. AG Chambers/Min. Transp/RA MoU domesticated

(c) Commence enforcement of Tripartite MoU on VLM Nat. Ministry Transport/RA MoU operational

Strategic Element 3 - WB Infrastructure & Equipment

(a) Determine optimal location of WBs on regional network TTF-VLM/SST/National RA Optimal WB location plan approved by TTF-VLM

(b) Prepare guideline on weighbridge specs/selection criteria TTF-VLM/SST/National RA Guideline approved by TTF-VLM

(c) Prepare model WB station layout TTF-VLM/SST/National RA Model WB station layout approved by TTF-VLM

(d) Establish electronic linkage of WBs to central unit TTF-VLM/SST/National RA Regional WBs electronically linked

(e) Assess adequacy of existing WB stations and equipment SST/National RA Report approved by national Min. Transport

(f) Upgrade WB station layout and install new WBs National RA WB stations upgraded and new WBs added

Strategic Element 4 -: WB Operations and Management

(a) Prepare guideline on WB ops & maintenance procedures TTF-VLM/SST/National RA Guideline approved by TTF-VLM

(b) Prepare guideline on WB verification & calibration proc. TTF-VLM/SST/Weights & Measures Guideline approved by TTF-VLM

(c) Prepare guideline on auditing of WB operations TTF-VLM/SST/National RA Guideline approved by TTF-VLM

(d) Prepare guideline on VLM Management Info System TTF-VLM/SST/National RA Guideline approved by TTF-VLM

(e) Establish VLM Management Information System TTF-VLM/SST/National RA VLM Management Information System operational

(f) Establish cross-border VLM system with Customs TTF-VLM/SST/National RA/Customs Cross-border VLM system with Customs operational

(g) Establish guideline on self-regulation TTF-VLM/SST/National RA Guideline approved by TTF-VLM

(h) Introduce pilot scheme for self-regulation TTF-VLM/SST/National RA Pilot scheme operational

Annex 2 Draft Tripartite VLM Strategy and Implementation Plan


39

Strategic Element Year Responsible Entity

Key Performance Indicator 1 2 3 4 5

Strategic Element 5 – Human Resources and Training

(a) Undertake needs analysis of training requirements TTF-VLM/SST/National RA Guideline approved by TTF-VLM

(b) Establish/designate regional training centre(s) TTF-VLM/National RA Regional training centre(s) operational

(c) Develop training manual and syllabus TTF-VLM/SST/National RA Training manuals approved by TTF-VLM

(d)Undertake staff training/study tours TTF-VLM/SST Training/study tours undertaken

(h) General VLM advocacy and follow-up RECs/ASANRA/FESARTA Inclusion in periodic reports and meetings

Strategic Element 6 - Public Awareness and Support

(a) Develop VLM communications and visibility strategy TTF-VLM/SST/National RA VOC communication strategy approved by TTF-VLM

(b) Implement VLM public awareness strategy TTF-VLM/National RA VOC public awareness strategy approved by TTF-VLM

(c) General VLM advocacy and follow-up RECs/ASANRA/FESARTA Inclusion in periodic reports and meetings

Strategic Element 7: Monitoring and Evaluation

(a) Monitor progress on VLM strategy implementation TTF-VLM/CMI/Nat RA Progress reports

(b) Develop VLM corridor performance indicators TTF-VLM/Nat RA PIs approved by TTF-VLM

(d) Undertake corridor/national baseline axle load surveys TTF-VLM/CMI/Nat RA Axle load survey reports

(e) Monitor/report corridor/national VLM status TTF-VLM/CMI/Nat RA Progress reports

(f) General VLM advocacy and follow-up TTF-VLM/regional associations Inclusions in assoc. reports and meetings

Abbreviations and Notes

ASANRA-Association of Southern African National Road Agencies and the equivalent bodies in COMESA and EAC FESARTA-Federation of East and Southern Africa Road Transport Associations Ministry of Transport- Ministry with the responsibility for transport policy and regulation, especially vehicle overload control National AG Chambers-National ministry/department responsible inter alia for advising government on negotiations and accessions to international agreements and legal drafting. National RA-National government agency or department responsible inter alia for construction and maintenance of state road infrastructure. NTP-National Transport Policy REC-COMESA, EAC, SADC Secretariats individually or collectively SST – Specialist Support Team TTC-VOC-Proposed Tripartite Vehicle Overload Control Oversight institutions VLM = Vehicle Load Management. WB = Weighbridge

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