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Land Transport Safety and SecurityEuropeAid/126786/C/SER/MultiThis Project is fundedby the European Union

The European Unions TRACECA programmefor Armenia, Azerbaijan, Georgia, Kazakhstan, Kyrgyzstan, Moldova,

Tajikistan, Turkmenistan, Ukraine, Uzbekistan

EUROPEAID/126786/C/SV/MULTI

Land Transport Safety and Security

for Armenia, Azerbaijan, Georgia, Kazakhstan,

Kyrgyzstan, Moldova, Tajikistan, Ukraine, Uzbekistan

Inception Report

June 2009


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Land Transport Safety and Security - EuropeAid/126786/C/SER/MultiThis Project is fundedby the European Union

1

REPORT COVER PAGE

Project Title: : Land Transpor t Safety and Securit y (TRACECA)

Project Number: EuropAid/126786/C/SER/Multi

Beneficiary Countries: : Armenia, Azerbaijan, Georgia, Kazakhstan, Kyrgyzstan,Moldova, Tajikistan, Ukraine, Uzbekistan.

Project Partner Contractor

Name: EuropeAid Cooperation Office SAFEGE

Address: Rue Joseph II Gulledelle 92B-1000 Brussels B-1200 Brussels

Tel. number: 32 3 295 26 32 32 2 739 46 90

Fax number: 32 2 295 56 65 32 2 742 38 91

E-mail: [email protected] [email protected]

Contact person: Barbara Bernardi Ian GrantProgramme Manager Senior Project DirectorCentralised Operations (Transport)

Signatures:

__________________________ _______________________

Date of report: 5th

June 2009

Reporting period: March 2009 May 2009


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Table of Contents

1. Project Synopsis 3

2. Analysis of project context 5

2.1 General project relevancy 5

2.2 Project relevant legal framework for harmonisation of land transport safety issues 7

3. Project Planning 15

3.0 Activities undertaken during the Inception Phase 15

3.1 Project approach 22

3.2 Objectives and results of the project 23

3.3 Planned activities 25

3.4 Constraints, risks and assumptions 43

3.5 Work Planning 45

4. Project planning for next reporting period 48

Annexes 49

Annex 1 Project Terms of Reference 50

Annex 2 Project Planning Documents 70

Annex 3 Revised Project Logframe 87

Annex 4 Persons interviewed / met during the Inception Phase 91

Annex 5 Opinion of the European Economic and Social Committee 95

on the European Road Safety Policy and Professional Drivers Safeand secured parking places

Annex 6 Contact details of project offices 99


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1 Project synopsis

Project Title: Land transport safety and security

Project Number: EuropAid/126786/C/SER/Multi

Country: Armenia, Azerbaijan, Georgia, Kazakhstan, the Kyrgyz Republic,Moldova, Tajikistan, Ukraine, Uzbekistan.

Overall project objectives: To improve the transport safety and security environments in

the EC Neighbourhood and Central Asian countries in line withEuropean standards in the field of land transport

Specific project objectives:

1. To strengthen the institutional and human resource capacities of the nationalauthorities charged with regulating the transport safety and securityenvironments

2. To support the elaboration and enforcement of a legal and regulatory frameworkfor transport safety and security harmonised with international and Europeanstandards and best practises

3. To raise awareness of land transport safety and security regulations andstandards.

Planned outputs

1. Legal, institutional and organizational assessment of the situation in land transport safetyand security in the beneficiary countries and definition of a related regional Action Plan incoordination with specialized EU agencies

2. Support to rule-making and to the establishment of legal standards for safety practice(including for freight services and the transport of dangerous goods), institutional capacitybuilding and awareness raising activities in line with requirements of European standards;support to the creation of working links with related European agencies

3. Technical assistance to the national security authorities and main security operators in thesector of land transport in order to establish Road and Rail Transport Security Guidelinesand customs-related guidelines for drivers and operators carrying or handling dangerousgoods

4. Provision of technical expertise and on-the-job training for the development of inspection,training programmes and certification structures to ensure implementation of the safety andsecurity legislation

5. Implementation of a safety, security and environment awareness programme


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Project activities

Component 1: Institutional and human resource capacity building

Functional review of the land transport safety and security sector

Elaboration of a Regional Action Plan

Strengthening of institutional capacity

Strengthening of human resource capacities

Strengthening links with relevant European Agencies and professional institutions

Component 2: Strengthening the legal, regulatory and standards framework for landtransport safety and security

Establishment of a legal, regulatory and standards framework for land transport safetyand security

Strengthening of human resource capacities with respect to legal and regulatory draftingand enforcement

Elaboration and implementation of Road and Rail Transport Security Guidelines

Component 3: Awareness raising and dissemination measures

Elaborate and implement awareness campaign

Elaborate and implement a Communications Strategy

Identify and disseminate best practice

Project starting date: February 2009

Project duration: 36 months

Inputs:

Expert category Days input

Land Transport Safety Expert 400

Land Transport Security Expert/ Team Leader 500

International Transport Law Expert 400

Junior Non-Key Long-Term Experts 1500

Senior Non-Key Short Term Experts 550

TOTAL MAN DAYS 3350

Project implemented by : SAFEGE Consulting Engineers (France),IRD Engineering (Italy),NEA Transport (Netherlands),Parsons Brinckerhoff Ltd. (United Kingdom)


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2 Project relevancy

2.1 General project relevancy

2.1.1 The TRACECA countries have benefited significantly in the past decade from the

signature of the TRACECA Multilateral Agreement and their participation in the TRACECA

process and the BAKU initiative. Substantial support has been provided by the EC to assist the

authorities to improve the design, management and maintenance of the physical infrastructure,

strengthen institutional and human resource capacities and harmonise legislation, regulations

and standards not only at the national level but also at the intra- and inter-regional levels.

2.1.2 However, to date road and land transport safety and security issues have only been

addressed obliquely: indirectly regulations related to axle weights, improved vehicle certification,

better road design all contribute to improved safety and security. This project, however, is

designed to mainstream safety and security questions into all aspects of the work of the

Ministries of Transport, Road Administrations and related accreditation, certification and

metrological bodies.

2.1.3 The national authorities in the TRACECA countries recognise that if they are to take full

advantage of the investments that have been made (and are being made) in the transportation

infrastructure, increase intra-and inter-regional trade and gain greater access to global markets,

it will be imperative that their safety and security measures are harmonised with the UN-ECE

Agreements (AETR & ADR) and with EC Directives and Regulations. The existence of

differential safety and security legislation, regulations and standards within the TRACECA

countries and between the TRACECA countries and the EU and China, for example, create an

administrative barrier to trade. In the present global economic crisis, such administrative barriers

can constitute the difference between profitability, survival or bankruptcy for road haulage

companies. Tackling these issues at the national level will not be sufficient: there needs to be a

concerted effort to harmonise legislation, standards and regulations at the regional level.

2.1.4 Furthermore, the consequences of failing to tackle road and land transport safety and

security issues can have a seriously damaging impact upon the national and regional economy.

Transport economists in Europe have calculated that the losses accruing from accidents and

incidents are equivalent to 2% of GDP. The calculation is based upon such factors as

infrastructure and environmental damage; health care costs; lost labour time; reduced value


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added; insurance claims etc. This is an enormous burden for developing economies to bear,

particularly at a time when global GDP is projected to shrink by 4 5% during 2009 and by

marginally less in 2010.

2.1.5 The accident and incident rates in the TRACECA countries are not higher than in the EU,

when the statistical data is adjusted to reflect population levels. However, the date is somewhat

deceptive since it does not take into account traffic flows: there are fewer vehicles on the road

and the volume / nature of the traffic differs. As traffic flows increase, there is likely to be a rise

in the number of accidents and incidents. This fact is born out by a recent study published by

the World Health Organisation (June 2009). Approximately 1.3 million people die each year on

the world's roads, and between 20 and 50 million sustain non-fatal injuries. The WHO report

assesses road safety in 178 countries, using data drawn from a standardized survey. The

results show that road traffic injuries remain an important public health problem, particularly for

low-income and middle-income countries. The results suggest that in many countries road

safety laws need to be made more comprehensive, that greater attention needs to be paid to

road maintenance and road design, while enforcement should be strengthened.

2.1.6 During the last decade the volume of road transport has been growing very fast in the

TRACECA Member States. While on the one hand the growth of trade with Turkey is a major

factor contributing to this, on the other hand the opening of the Chinese road transport market

and the consequent transit traffic across Central Asia to the EU/China is contributing even

stronger growth in the volume of vehicles on the roads. The table below shows the situation for

Kyrgyzstan, where the grey column stands for the Chinese road transport vehicles.


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Source: Ministry of Transport and Communications of the Republic of Kyrgyzstan

2.1.7 This project is designed to address many of these issues: first, the project will continue the

good work started under previous EC and donor funded projects to support international trade

and facilitate the safe movement of passengers and goods along the TRACECA corridor;

second, it will contribute indirectly to economic growth and poverty reduction in the beneficiary

states by reducing the cost burden of accidents and incidents upon the national budget and

upon individual household budgets; third, it will raise awareness of land transport safety and

security regulations and standards and will help reduce the numbers of fatalities and injuries

resulting from land traffic accidents and incidents; fourth, it will strengthen the institutional and

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2005 2006 2007 2008 ..


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human resource capacities of the national authorities to develop and enforce safety and

security regulations in line with EU and international standards; finally and perhaps most

importantly, the project will further reinforce intra-regional co-operation between theGovernments, Transport Ministries, Road Administrations, the private sector and Civil Society

Organisations, and the resultant networking will contribute to the establishment and

dissemination of best practices. As we noted above, initiatives to tackle road and land transport

safety and security are most effective when they are implemented at regional level as well as

national level.

2.1.8 The project remains highly relevant indeed one might say that the current global

recession simply highlights the need for a project designed to strip away yet another layer of

administrative barriers to trade.

2.2 Project-relevant legal framework for harmonisation of land transport safetyissues

2.2.1 The comments below are designed to provide a brief introduction to some of the central

legislative and regulatory themes to be covered by the project. The following points need to be

emphasised: (a) the legislative and regulatory framework is extensive this summary provides

just a snap-shot of the central issues; (b) during the Inception Phase we have concentrated

upon data collection a detailed comparative analysis of the current legislative and regulatory

base in the beneficiary countries constitutes the focal point of the next phase of the project; (c) it

is fair to say that currently there is limited harmonisation of legislation and regulations at

regional level and that, since many states are not signatories of the AETR or ADR Agreements,

there are substantial steps to be taken before the countries within the region are fully compliant

with international standards.

AETR Agreement

2.2.2 The European Agreement concerning the work of Crews of Vehicles engaged in

International Road Transport (AETR), of 1st July 1970 is commonly referred to as the AETR

Agreement. It aims at improving road safety and regulating drivers hours, rules for working

and rest times. Today, 42 Contracting Parties have signed and ratified the AETR Agreement.


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2.2.3 The negotiation to incorporate EU Legislation on the digital tachograph into the AETR

agreement started in 2000. The introduction of the digital tachograph is designed to be a major

stimulus to road safety, by ensuring that professional drivers observe the regulations covering

driving and rest times. However, the implementation of European Union legislation is extremely

complex for all actors: Member States and their national authorities responsible for card issuing,

enforcement, policy implementation, and also related stakeholders from industry such as

tachograph, card and vehicle manufacturers, etc. need to prepare well in advance of the

implementation date.

2.2.4 The UNECE Inland Transport Committee adopted the AETR Amendments in 2004.

However, the ratification process was delayed by a Communication from the Netherlands

stating that it intended to accept the AETR Amendments once its internal legal system had been

adapted. On 16th March 2006, the Netherlands notified the UN Secretary General that it

accepted the Amendments to the AETR Agreement. According to the UN procedure, these

Amendments entered into force three months after the date of acceptance, namely on the 16th

June 2006, which also marked the starting date of the 4-year transition period before themandatory introduction of the digital tachograph into AETR contracting parties, namely on 16 thJune 2010.

2.2.5 At present the following beneficiary TRACECA Countries are Party State to the AETR

Agreement and have to adapt their legislation and institutional arrangements to be ready in

June 2010: Armenia, Azerbaijan, Kazakhstan, Moldova, Ukraine and Uzbekistan. For Georgia,

Kyrgyzstan and Tajikistan it would be advisable to become a Party State to the AETR

Agreement in order to upgrade their level of road transport quality.

2.2.6 As from the 16th June 2010, the digital tachograph will become mandatory for new

vehicles put into service for the first time in non-EU AETR Contracting Party States. Such

introduction requires considerable efforts from the non-EU AETR Contracting Parties to meet

the deadlines. An assessment in terms of timing is supplied, although timing depends a lot on

the administrative organisation of each State. As an example based on EU experience, in

Lithuania, the same organisation is competent to issue cards (and therefore to issue and

maintain a security policy), to approve workshops and to enforce the rules on drivers hours

and the proper use of tachographs, whilst in Germany these responsibilities are distributed

between different organisations. As a result, Lithuania has been much quicker to implement the


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digital tachograph system than Germany. But having started sooner, Germany was up and

running more than one year before Lithuania.

2.2.7 It has to be emphasised that:

despite the fact that the digital tachograph system is mandatory for domestic and

international road transport at EU level,

despite the fact that it is known in its very details since 2002,

and despite the very intensive support supplied to national administrations by the

European Commission,

it has been and will be difficult for several EU Member States to complete their implementation

process within the required timeframe. It is highly probable, that without support, the non-EU

AETR Contracting Parties will find it extremely difficult to be ready by the 16th June 2010.

2.2.8 The implementation of the digital tachograph is a very complex operation. It requires:

Approving a security policy at national level

Issuing tachograph smart cards

Adopting national laws on data management and data protection

Adopting national laws on enforcement (roadside and company checks)

Training and equipping national control officers

Approving workshops for installation, activation, calibration, inspection, downloading,

repair and replacement of the digital tachograph

2.2.9 Regarding workshop certification for instance, it was stressed that the AETR countries not

members of the European Union would have to draw up an entire set of rules in their legislation

covering all aspects (in particular, equipment, staff training and skills). Such regulations should

also include a disciplinary procedure, along with regular supervision of the workshops. The

AETR countries were invited to follow the lead of the countries of the European Union in that

field.


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Picture 2.1 Disorganised parking of lorries on a mountain road in Kyrgyzstan can create dangerous situations

Road in frastruc ture safety management

2.2.10 The Council of European Ministers of Transport in their resolution 93/4 on lorries and

road traffic safety (CEMT/CM(93)4/FINAL) stipulated the importance of the development of

ancillary infrastructure (rest and parking areas) to improve the physical comfort of lorry drivers

and thereby create safer conditions. The EU Directive 2008/96/EC on road infrastructure safety

management recognises that a sufficient number of safe rest areas is important for crime

prevention (security) and road safety. When planning a road infrastructure project, the

competent authorities in the Member States have therefore to take into account this aspect.

2.2.11 The setting up of appropriate procedures is an essential tool for improving the safety of

road infrastructure within the trans-European road network. Road safety impact assessmentsshould demonstrate, on a strategic level, the implications on road safety of different planning

alternatives of an infrastructure project and they should play an important role when routes are

being selected. Moreover, road safety audits should identify, in a detailed way, unsafe features

of a road infrastructure project. Road safety impact assessment can additionally be

implemented with the view to improving the organisation of parking places for trucks, making it


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possible for drivers to optimise their driving and rest periods as required by the AETR

Agreement and checked by the tachograph.

2.2.12 In Italy, there is a programme to support the building or improvement of secure truck

parking areas. Approximately 20 target regions have been selected where actions could take

place.

2.2.13 The construction of the secured parking area is subjected to precise rules:

The parking area should be enclosed by fences and under surveillance both at the

entrance and the exit points;

It should be equipped with lighting to allow during night time security and mobility;

It should be designed in order to ensure sufficient water drainage

The parking area should offer a prescribed minimum number of slots for certain

types of transport (dangerous goods, perishables, long-term rest facilities

connected to long distance transport);

The parking area should be designed in order to allow the ordinary truck

maintenance, e.g. equipment for washing vehicles, washing loading units, making

small repairs, tyre changes, etc;

The parking areas must contain a service area in which the following services are

required: restaurant, mini-hotel, toilettes, shower, laundry, fax, mailing service,

phone boxes. Additional, non-required, provisions are the following: mini market,

eco-diesel fuel distribution and emergency assistance.

2.2.14 EU Research Projects, like LABEL, are investigating concepts and criteria for safe and

secure parking areas, and demonstrate in the chart below a clear connection between driving

times and rest periods on the one side and availability of secure and safe parking areas on the

other hand.

2.2.15 The European Economic and Social Committee have give their opinion on the European

Road Safety Policy and Professional Drivers Safe and secured parking places, which is

annexed to this Inception Report (Annex 5).

2.2.16 The issues driving times and rest periods, digital tachograph and safe and secure

parking are directly related with each other and have road safety as their main objective.

Therefore the project considers it vital to have an integrated approach towards these issues.


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Dangerous Goods (ADR Agreement)

2.2.17 The European Agreement concerning the International Carriage of Dangerous Goods by

Road (ADR) was concluded at Geneva on the 30th September 1957 under the auspices of the

United Nations Economic Commission for Europe, and it entered into force on the 29 th January

1968. The Agreement itself was amended by the Protocol amending Article 14 (3) signed in

New York on the 21st August 1975, which entered into force on the 19th April 1985.

2.2.18 The Agreement itself is short and simple. The key Article is the second one, which states

that apart from some excessively dangerous goods, dangerous goods may be carried

internationally in road vehicles subject to compliance with:

AETR Agreement(UN/ECE)

(EC Regulation561/2006)

Regulate drivingtimes and rest

periods in order toimprove road safety

Stipulate use ofdigital tachographas proof of driving

times and restperiods

Make it necessaryto have sufficientcapacity of safe

and secure parkingplaces


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the conditions laid down in Annex A for the goods in question, in particular as regards their

packaging and labelling; and

the conditions laid down in Annex B, in particular as regards the construction, equipment

and operation of the vehicle carrying the goods in question.

2.2.19 Annexes A and B have been regularly amended and updated since the entry into force of

ADR. The last amendments entered into force on the 1st January 2009, and consequently, a

revised consolidated version was published as document ECE/TRANS/202, Vol. I and II ("ADR

2009").

2.2.20 Most dangerous goods in the TRACECA region are traditionally transported by rail (e.g.

crude oil). Due to the growth of road transport in Central Asia, one may however expect a

growth in additional transport of dangerous goods by road and therefore compliance with ADR

becomes a sensible, indeed, necessary option.


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operational by the end of March 2009. The addresses and contact numbers are set out in

Annex 6.

3.0.4 The Project Director and the Team Leader drafted a proposal for the use of the Incidental

Expenditure budget line. This proposal was accepted by the EC Project Manager and the

methodology for use of the IE budget line was agreed.

3.0.5 The main tasks performed during the Inception Phase were:

(a)A review of the Terms of Reference (objectives, results, risks and assumptions) in light

of the situation on the ground. The conclusions of this analysis are set out in Section

2.2.2 below;

(b)A preliminary review of the structures responsible for land transport and road safety in

the beneficiary countries and familiarisation with the current institutional and legal

frameworks. This data will be developed further during the Implementation Phase;

(c) Meetings with the various beneficiaries, TRACECA National Secretaries, main

stakeholders in the Transport Sector and other involved state organisations to discuss

the current situation in the Transport Sector, existing ideas and plans and identify the

essential points. A complete list of persons/institutions met is attached as Annex 4;

(d) Visibility Actions the Project Director, Team Leader and KE 2 met with the

responsible persons in the EC Delegations, IFIs, TRACECA National Secretariats,

Ministries of Transport, Civil Society Organisations, to brief them on the objectives of

the project and the planned work programme and modalities;

(e) Detailed planning discussions the Team Leader and KE2 met the principal

beneficiaries and stakeholders to discuss in detail their principal priorities, needs and

interests in order that these might be incorporated into the detail work programming;

(f) Coordination activities the Team Leader met with the TRACECA Permanent

Secretariat in Baku and the Team Leader and KE 2 also with the Team Leaders / Key

Experts of parallel EC funded-TRACECA projects, notably Strengthening of Transport

Training Capacity in NIS countries, International Logistics Centres for Western NIS and

the Caucuses, Development of equipment certification centres for the transportation of

perishable goods in Central Asia and International Logistics Centres for Central Asia

and Central Asia National Transport Policies


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(g) Translation and dissemination activities the project team has translated from English

to Russian a significant number of EC Laws and Regulations related to Land Transport

Safety and Security. In addition, the relevant Policies, Laws and Regulations from a

number of beneficiary countries have been translated from the local language into

English. This work is continuing and will form the basis for the implementation of

activities planned under Component 1.

3.0.6 The following missions to beneficiary countries have been executed:

Rudolf Kamphausen (Team Leader based in Georgia) in March to Ukraine and

Moldova, in April to Armenia and Azerbaijan

Menno Langeveld (Legal expert) in April to Kazakhstan and Kyrgyzstan, May to

Tajikistan

Ian Grant (Senior Project Director) in March to Moldova and Georgia, in April to

Kazakhstan

It has not been possible to visit all of the beneficiary countries during the Inception Phase.

However, during his Mission to Kazakhstan, the Project Director was able to meet, brief and

obtain feedback from the TRACECA National Secretaries from Uzbekistan and Tajikistan, who

were attending an Opening Conference for a parallel TRACECA project (International Logistics

Centres for Central Asia), being implemented by this Contractor.

3.0.7 The following table demonstrates the inputs utilised during the Inception Phase (until end

of May 2009)

Post Available mandays

Man days utilised % of available mandays used during IP

Team Leader / Transport

Security Expert500 51 8.2%

Transport Law Expert 400 32 8.0%

Transport Safety Expert 400 0 0%

Senior short-term non-

key experts550 0 0%

Junior long-term non-key

experts1,500 141 9.4%

TOTAL 3350 224 6.7%


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Major conclusions f rom the missions and meetings

3.0.8 Each of the beneficiaries expressed their interest in the proposed project activities.

International road transport is still growing fast in the Beneficiary Countries, presenting the

responsible authorities with huge new challenges to be addressed, notably with respect to the

growing volume of transit traffic. The beneficiaries acknowledge that there is a need to

harmonise legislation, standards, certification and enforcement procedures in order (a) to

facilitate continued growth in the land transportation of goods; (b) to reduce administrative and

technical barriers to trade; and (c) to ensure the safe carriage of goods and safety to road

users. The emphasis upon legal and regulatory harmonisation was therefore welcomed, as

were the proposed training initiatives.

3.0.9 The issue of road safety (as opposed to transport safety) was also raised by a number of

beneficiaries and by project managers in the EC Delegations. The link between road and

transport safety was emphasised: the safe carriage of goods also required that certain issues

(drink-driving, speeding, use of seat belts etc), which more specifically linked to road safety, be

tackled.

Digital Tachograph3.0.10 This issue was at the top of the agenda for almost all stakeholders. As from the 16 th June

2010, the digital tachograph will, for the first time, become mandatory for new vehicles put intoservice in the non-EU AETR Contracting Parties. Complying with this requirement will

necessitate considerable efforts from non-EU AETR Contracting Parties. Technical Assistance

was requested particularly in the form of training of operators, enforcement officials and drivers

on how to deal with the digital tachograph, while a Study Tour to EU Member States was

welcomed in order to understand the practical requirements of implementing the digital

tachograph.

Transportation of Dangerous Goods

3.0.11 Only a few Beneficiary Countries have signed and ratified the ADR Agreement

Azerbaijan, Kazakhstan, Moldova and Ukraine - regulating road transportation of dangerous

goods. However, most of the beneficiary states who have not as yet signed the Agreement

recognised the importance of doing so quickly. Once again assistance in the form of advice and

training was welcomed.


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Safe and Secure Parking Spaces3.0.12 The concept of dedicated, safe and secure parking spaces for trucks was welcomed by

several partners, especially in Kyrgyzstan and Kazakhstan, where many new roads have been

constructed or are in the process of construction, neglecting to include parking and rest areas

for trucks. For the Ministry of Transport and Communications in Kyrgyzstan this issue was in

fact the most important one: Kyrgyzstan faces more and more trucks on the road as a result of

the opening of the Chinese road market and improvement of its road infrastructure.

3.0.13 The Ministry of Transport in Kyrgyzstan suggested that a road safety impact assessment

study be carried out in order to identify areas for safe and secure parking for trucks, is an

interesting one. It is proposed that this should be done as a pilot in 2010 with potential follow up

in other countries. The International Road Transport Union (IRU) and the European Transport

Workers' Federation (ETF) have elaborated common criteria which are well formulated and

practicable and which must be taken into account when such rest facilities are constructed.

These criteria, and new criteria emerging from EU research projects, can be used to analyse

the present situation in the Beneficiary Countries.

Infrastructure

3.0.14 Furthermore, the issue of preparing road safety audits was frequently raised. Poor road

design and maintenance are major contributors to accidents and incidents. Road safety auditing

is as yet an underdeveloped skill within the region and therefore technical assistance and

training would be welcomed.

Pilot Projects on Awareness to Road Safety

3.0.15 In some of the Beneficiary Countries (notably Moldova and Georgia) special requests

were received to assist with implementing pilot projects on road safety awareness in order to

address and stimulate behavioural change. Moldova has initiated a road safety campaign and

Georgia has made substantial efforts to improve road safety awareness: in October 2008, the

wife of the President of Georgia initiated a Road Safety Day, and this has been followed up by

non-governmental organisations, who are implementing a series of actions in schools and

amongst the general public designed to draw attention to road safety issues. The Project


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Managers in the EC Delegations to Moldova and Georgia also expressed their desire to see

road safety issues incorporated into the project.

Collaboration and co-ordination with non-governmental agencies

3.0.16 Good working relationships have been established not only with the national authorities

responsible for the land transport and road safety sectors, but equally importantly the Team

Leader and KE2 have pursued a number of initiatives designed to involve non-governmental

organisations in project implementation. KAZATO, the Union of International Road Carriers of

the Republic of Kazakhstan, invited the project to participate in the 5 th Euro-Asian Road

Transport Conference in Almaty, 11th 12th June 2009. During this conference many non-

governmental stakeholders will be present and can be met.

3.0.17 The IRU1 has also expressed its willingness to become involved by providing access to

its training facilities both in Brussels and in the region and by providing specialised trainers if

request. The active involvement of the IRU would be of enormous benefit to the project and

would certainly contribute to the longer-term sustainability of project results.

Main problems and deficiencies identified

3.0.18 The main problems and deficiencies:

Lack of legislative and regulatory harmonisation within the region and with EU Directives

and Standards

Very limited knowledge / regulation of the transportation of dangerous goods generally

Very urgent and strong need for assistance to implement the digital tachograph in most

Beneficiary Countries

Insufficient adherence to important road safety agreements AETR and ADR in many

Beneficiary Countries

1 The International Road Transport Union (IRU) and their members in all TRACECA Countries (Associations of

International Road Transport Operators), play a key role in the development of road transport in the TRACECA region.

The associations can act as catalysts for upgrading the road transport sector in the beneficiary countries. Pursuant to its

work in favour of road safety since its foundation in 1948, the International Road Transport Union is committed to

promoting a culture of road safety in the road transport industry as an essential element in its Charter for Sustainable

Development, acceded to by all its national Member Associations in 1996.


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No organised parking spaces for trucks in some of the Beneficiary Countries, but this issue

must be investigated more in detail in order to get a more complete overview of the situation

Inadequate enforcement of current legislation and regulations

Driver attitudes and behaviour leading to non-compliance with legislation/regulations

Target groups/principal beneficiaries of the present Project

3.0.19 The target groups/principal beneficiaries in the TRACECA countries are the Ministries ofTransport, Ministries of Interior and budgetary structures responsible for road and land transport

safety and security issues (policy, legislation, regulations, enforcement). Inter alia, these will

include structures responsible for certification, accreditation and metrology.

3.0.20 Secondary beneficiaries will include National Associations of International Road Hauliers

as catalysts for upgrading the road transport sector in the beneficiary countries and Civil Society

Organisations dealing with road and land transport safety and security issues.

Relationship with other projects

3.0.21 There are several on-going and recently completed TRACECA projects that are linked

directly or indirectly to this present project. During the Inception Phase, the Project Director,

Team Leader and KE2 made contact with the Team Leaders of these projects in order to

determine the degree to which synergies might be achieved.

3.0.22 Co-operation has been established with the TRACECA project Strengthening of

Transport Training Capacity in NIS countries . Maintaining close relationships with this project

will be extremely important for the sustainability of the outputs from this present project. It is

understood that currently road and land transport safety and security issues do not constitute a

significant part of the curriculum followed by Transport Engineers/Transport

Economists/Transport Lawyers during their undergraduate or graduate studies. Preliminary

discussions have been held to determine whether or not a module on road and land transport

safety and security might be included in the future curriculum. This suggestion was welcomed

by the TL of the sister project and it was agreed to seek ways in which the two projects might

work together to realise the proposal.


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3.0.23 There are currently two on-going TRACECA projects targeted at establishing Logistic

Centres along the trans-Eurasian and trans-Caucasian corridors. Again the project team has

made contact with the Team Leaders of these projects and good relationships have been

established. While at first glance there may not appear to be synergy between these two

projects and this present project, the establishment of Logistics Centres could become a major

catalyst for improving land transport safety and security in two important ways. First, the

Logistics Centres will host some of the largest and most important freight forwarding companies

in their respective regions, companies that are engaged daily in trade into Europe and into

China. The Centres will therefore provide a critical mass of operators, enabling training,

awareness raising, certification, testing and enforcement activities to be carried out in a cost-

effective manner. Secondly, the drivers who pass through the Centres are also likely to be those

involved in long-distance haulage. Awareness raising activities can therefore be targeted with

precision.

3.0.24 Finally the Project Director of the closed Central Asian National Transport Policies project

was able to provide all documents related to this project, including analyses of regional land

transport safety and security issues. This assistance has proved invaluable and has reduced

the risk of overlap and duplication.

3.1 Project approach

3.1.1 The basic approach will remain more or less unchanged from the one outlined in the

Technical Proposal. There are no changes to the Results defined in the Terms of Reference.

Nevertheless, after review of the present situation and discussions with beneficiaries and major

regional stakeholders it became clear that the content and sequencing of the planned activities

needed to be adapted to reflect the beneficiaries priorities. The revised approach is explained

below.

3.1.2 Firstly, the approach differs in terms of emphasis and sequencing. The Terms of

Reference focused upon the generic issue of legal approximation. The priorities for legal

harmonisation were to be defined following a comprehensive Gap Analysis, which was to be

carried out in the first 9 months of the project, and which was to constitute the basis for the

elaboration of a Regional Action Plan. While these activities will still be carried out and the


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Regional Action Plan will be used to guide the legal and regulatory drafting process, there is

one urgent issue, which we believe must be addressed immediately, and where the project can

bring immediate added value.

3.1.3 As from June 2010, the Beneficiary Countries have to be ready to implement the digital

tachograph. As we noted earlier, this is the one priority upon which there is immediate and

unequivocal agreement amongst the beneficiaries. It is clear that most countries have to update

their transport legislation to introduce the digital tachograph, and are in the process of doing so,

but the practical implementation leaves many questions for which specialized expertise is

required. We propose therefore to start work immediately upon this element of Component 2, in

advance of the results of the Gap Analysis. The project team can provide technical assistance

on this matter, probably in the form of support to legal drafting, training (including train the

trainers) and study tours. Furthermore, if the introduction of the digital tachograph is to proceed

smoothly there needs to be good cooperation between the National Authorities and the

Associations of International Road Transport Operators (IRU members). The project can help

facilitate these discussions.

3.1.4 We firmly believe that this element of the project can proceed immediately since it is a

clear, discreet issue and can proceed in tandem with the work on the Gap Analysis and the

Regional Action Plan. The results of the Gap Analysis and the Regional Action Plan can then

form the basis of the work of the project (related to institutional capacity building and legal

harmonisation) for the period from Month 15 to the closure of the project (Month 36).

3.1.5 The second substantive change relates to Component 3, raising awareness of Land

Transport and Security regulations and standards. Following discussions with the Contracting

Authority and in response to requests from TRACECA National Secretariats and EC

Delegations in the Beneficiary countries this Component will be widened to include elements of

Road Safety, particularly where there is a cross-over (e.g. drink/drugs driving seat belts

speeding).

3.2 Objectives and Results of the project

3.2.1 The overall objective of the project is to improve transport safety and securityenvironments in the EC Neighbourhood and Central Asian countries in line with European


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standards in the field of land transport. The overall objective is to be achieved through the

implementation of activities designed to enhance institutional and human resource capacities,

strengthen the legal and regulatory framework and raise awareness.

3.2.2 The Results defined in the Terms of Reference are:

Legal, institutional and organizational situation in land transport safety and security in the

beneficiary countries assessed and a related regional Action Plan in co-ordination with

specialised EU agencies is defined

Institutional capacity strengthened

Working links with related European agencies created

The legal, regulatory and standards framework related to transport safety and security is

improved

Capacities of inspection, certification and enforcement structures to ensure implementation

of the safety and security legislation enhanced

Awareness of transport safety and security issues amongst public institutions, road and rail

operating companies and the general public is raised

3.2.3 The ToR indicates the Scope of the Services, which are to be provided by the TechnicalAssistance Team. We have grouped the Activities into 3 Components and will implement the

project accordingly:

1. Institutional and human resource capacity building

2. Strengthening the legal, regulatory and standards framework for Land Transport Safety and

Security

3. Awareness raising and dissemination measures


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3.3 Planned Activities

3.3.1 The proposed sub-components / activities are set out below.

Component 1: Institutional and human resource capacity building

3.3.2 This Component has the following objectives: To review and upgrade the legal, institutional and organisational framework for the

management of land transport safety and security issues in the beneficiary states

To develop a Regional Action Plan to improve the safety and security management

infrastructure and to define the priorities for the land transport safety and security sector in

the region

To strengthen the institutional and human resource capacities of institutions responsible for

policy-making and management issues related to land transport safety and security in the

region

To strengthen the links with the related European agencies

Sub-component 1: Functional Review of the Land Transport Safety and Security sector

3.3.3 This sub-component is key to the successful implementation of the project, since

subsequent actions must be based upon a thorough understanding of the institutional,

legislative and regulatory base of the land transport safety and security sector and upon a

consensus around the priorities, objectives and actions to be pursued in order to ensure that the

TRACECA countries are moving into line with international and EC conventions, laws,

regulations and standards.

3.3.4 The TA Team, as part of the Inception Phase, has begun the process of acquiring detailed

information concerning the transport policies, institutional arrangements and legislative and

regulatory frameworks in the various beneficiary countries. However, this process needs to be

extended and developed in a more rigorous fashion. During the 1st phase of the project we will

carry out a Functional Review of the Ministries and National Agencies in charge of these issues.


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This in itself is a difficult task, since there are a substantial number of Ministries and Agencies

involved. Many of the issues (certainly those linked to Health and Safety) are horizontal and

therefore fall within the purview of several Ministries. Similarly, issues related to accreditation,

certification, metrology, inspection and enforcement do not always fall under the control of the

Ministry of Transport. The initial purpose of the Functional Review will be to determine whether

there is a clear separation of policy-making, administrative and enforcement functions and to

identify clearly, which institutions are responsible for which functions.

3.3.5 This will be paralleled by an assessment of institutional capacity. Inter alia, this will involve

an examination of the institutional capacity to elaborate policy, draft legislation and regulations,

identify relevant standards, implement (certification, accreditation and metrology) and enforce.

The Review will also address technical issues (accident database for example),

communications capacity (existence of a communications policy/communications tools) and

staffing levels (are sufficient staff allocated to deal with safety and security issues). It will not

address skills levels or training needs at this stage.

3.3.6 The Functional Review will be implemented at individual country level and brief country

diagnostic reports will be prepared.

3.3.7 The TA Team will also carry out a Gap Analysis with respect to the existing legal,

regulatory and standards framework related to land transport safety and security issues, notably

with respect to the digital tachograph, transport of dangerous goods and vehicle standards. Key

Expert 2 has prepared a Table of Concordance, which will be applied to the legal and regulatory

frameworks in each of the beneficiary countries.

3.3.8 Given the scope of the work, the Functional Review process will be a lengthy one. We

anticipate that it will be completed within six months of the end of the Inception Phase.

3.3.9 In Month 10 of the project, the Project Team will prepare a Synthetic Report which will

include:

Identification of main issues to be addressed and preliminary suggestions for

priorities and objectives of the Action Plan

Preliminary recommendations for institutional reorganisation in line with

international best practise


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Identification of legislative, regulatory, administrative, and standards issues to be

addressed

Identification of potential stakeholders /project partners in the private sector and

amongst Civil Society Organisations

3.3.10 The Individual Country Reports and the Table of Concordance will be annexed to the

Synthetic Report.

3.3.11 The Synthetic Report will be translated into Russian and circulated to all primary

stakeholders. A Debriefing Meeting will be organised in Month 11 of the project, the purpose of

which will be two-fold: (a) to agree the priorities and objectives of the Regional Action Plan; (b)

to appoint an Advisory Group, whose task it will be to assist in the elaboration of the Regional

Action Plan. The role of the Advisory Group will be both technical and political. It will offer

guidance to the Project Team during the preparatory phase of the Regional Action Plan, provide

comments on drafts of the document and identify any political constraints to the implementation

of the Plan.

Sub-component 2: Elaboration of a Regional Action Plan

3.3.12 Between Months 12 15, the Project Team will prepare a draft Regional Action Plan.

The work will be carried out in close consultation with Advisory Group, and with experts in the

TRACECA Permanent Secretariat in Baku. While it is not possible at this stage to define the

content of the Regional Action Plan, we can indicate the structure:

Executive Summary

Review of the conclusions and recommendations of the Synthetic Report

Priorities and Objectives

Institutional Reform Legislative and Regulatory Amendments

Standards, Certification, Metrology and Enforcement

Management and Implementation Arrangements

Monitoring and Evaluation: indicators and methodology

Timeframe

3.3.13 At the end of Month 15 / beginning of Month 16, we propose to convene a formal

meeting to discuss and adopt the Regional Action Plan. Ideally, this meeting should be held in


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Baku and be chaired by the EC Project Manager and the TRACECA Permanent Secretariat. We

will thereafter support the implementation of the Regional Action Plan throughout the remainder

of the project.

Sub-component 3: Strengthening of Institutional Capacity

3.3.14 The Regional Action Plan is likely to throw up a series of issues related to strengthening

the institutional capacities of the beneficiary institutions. In our Technical Proposal we

suggested two areas where we believe that we might contribute to institutional capacity building:

the first related to developing consultative and communication tools. This matter is dealt with

below in paragraph 3.3.54 onwards. The second concerns the development of improved

accident / incident data collection, analysis and reporting tools.The European Council decidedon the 30th November 1993 that a Community database on road accidents should be developed

(Council Decision 93/704/EC). The database is referred to as CARE (Community database onAccidents on the Roads in Europe). The database makes it possible to identify and quantifyroad safety problems, evaluate the efficiency of road safety measures, determine the relevance

of Community actions and facilitate the exchange of experience.

3.3.15 Unfortunately, the resources available under the project would not enable the TA Team

to make major interventions to strengthen institutional capacities at national levels. Any

interventions would have to be regionally focused. We are convinced that it would be sensible to

adapt the techniques and methodologies applied in CARE and develop a comparable

TRACECA-level database of road traffic accidents/incidents. In our opinion, this would be an

important tool for use in future regional policy-making.

3.3.16 Nevertheless, the final decision on this activity will be taken consequent upon the

adoption of the Regional Action Plan.

Sub-component 4: Strengthening of Human Resource Capacities

3.3.17 There are several areas in which the human resource capacities of the beneficiary

Ministries and Agencies might be strengthened. We have foreseen two different types of

training intervention: under this sub-component we plan to design and deliver what might be

called generic training, familiarising the primary beneficiaries and stakeholders with the issues

related to road and land transport safety and security.


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3.3.24 In the interests of sustainability, we will necessary organise a Train the Trainers

programme. In our opinion, at least three persons (one from the MoT, one from each of the

Roads and Rail Administrations) in each of the beneficiary countries should be trained to deliver

training and in-service refresher courses to colleagues and inductees. It would also be their

responsibility to maintain and update the Training Manual. A regional-level workshop will be

organised in the third quarter of 2009, prior to the organisation of the generic training workshop.

This will enable some of them to participate, alongside the TA team, in the delivery of formal

training to their colleagues. The TA Team will also prepare in-service training materials, which

may be used by the trainers throughout the lifetime of the project and beyond.

3.3.25 We will coordinate our training efforts, as much as possible, with the TRACECA project

Strengthening of Transport Training Capacity in NIS countries .

Sub-component 5: Strengthening links with relevant European Agencies andprofessional institutions

3.3.26 During the Inception Phase, the project already established contact with the International

Road transport Union (IRU). The IRU supports our project and is interested to have the project

work with their members associations in the beneficiary countries. One of these members,

KAZATO in Kazakhstan, will organise a large international conference in June 2009 on road

transport issues and has invited the project to attend this conference.

3.3.27 Other international institutions with whom the project proposes to coordinate its efforts

will be:

United Nations Economic Commissions for Europe Transport Section (UN/ECE) which is

responsible for AETR and ADR Agreements

The Confederation of Organizations in Road Transport Enforcement (CORTE), which isstrongly involved in the implementation of the digital tachograph within the EU

3.3.28 In addition, the TA Team will ensure that close contacts are established and maintained

with the leading European structures involved in road and land transport safety and security

issues: DG TREN, the European Road Safety Observatory, the CARE database and the

European Road Safety Charter.


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Timing of inputs and outputs3.3.33 Several of the activities under this Component are not time-bound and will continue

throughout the lifetime of the project: e.g. implementation of the Regional Action Plan, delivery

of informal and formal training, support to networking. However, there are a number of

milestones: the Functional Review will be completed by the end of Month 9; the Synthetic

Report will be delivered and discussed in Month 11; the Regional Action Plan will be finalised

and discussed at the end of Month 15, beginning of Month 16; the Training Manual will be

finalised by Month 35.

Component 2 Strengthening the legal, regulatory and standards framework forland transport safety

3.3.33 This Component has the following objectives:

To provide policy advice and technical assistance to the establishment of a legal, regulatory

and standards framework for road and land transport safety and security;

To strengthen human resource capacities with respect to legal and regulatory drafting and

enforcement;

To establish and implement Land Transport Security Guidelines

Sub-component 2.1: Establishment of a legal, regulatory and standards framework forland transport safety and security

3.3.35 The legislative Gap Analysis, carried out under Component 1, will identify what laws

regulations and standards need to be harmonised and the Action Plan will define the priorities,

indicate the steps (new legislation/regulation/standard or amendments) that need to be taken

and the timing of those steps. The Action Plan will also specify which enforcement procedures

need to be strengthened and in what ways. An indication of what will be covered by the Gap

Analysis is set out in tabular form below. This is simply an example and by no means purports

to provide comprehensive coverage of the relevant UN/ECE Agreements and EU

Directives/Regulations.

3.3.36 It is not possible to prejudge at this point where the focal point of the interventions will be:

that will be determined following the completion of the legislative Gap Analysis and the drafting

of the Regional Action Plan. However, during the Inception Phase, it became clear that three

issues will certainly need to be tackled during the lifetime of the project and support provided to

legal and regulatory drafting and the definition of relevant standards.


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the digital tachograph;

the transportation of dangerous goods;

vehicle standards (EURO 3-4-5)

3.3.37 However, one issue in particular, that of the digital tachograph, needs to be addressed

as a matter of urgency if the beneficiary countries are to meet the deadline of June 2010 to

which they are committed. We propose therefore under this sub-component to commence work

on this matter in advance of the finalisation of the Gap Analysis and the drafting of the Regional

Action Plan. During the second, third and fourth quarters of 2009, the Key Expert (International

Transport Lawyer) will assist the national authorities in each of the beneficiary countries to draft

legislation compliant with the AETR Agreements and relevant EC Directive(s).


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Land Transport Safety and Security

EuropeAid/126786/C/SER/MultiThis Project is fundedby the European Union

COUNTRYInternational Conventions Ratified Primary legislation Secondary

AETR

ADR

EU transport safety and security legislationHarmonised Primary legislation Secondary

Directive 88/77/EC Emission Standards

Directive 2008/96/EC Road infrastructure safety

management3820/EEC Working Time

3821/EEC Tachographs, recording devices

Council Directive 2003/30/EC Roadside

technical testing of commercial vehicles

Council Directive 96/96/EC Road worthiness

tests

Council Directive 991/439/EEC Driving licenses

Council Directive 2003/20/EC - Safety belts

Traffic behaviourSpeeding

Drink driving


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3.3.38 A comprehensive legislative and regulatory drafting Work Programme for 2010 and 2011

will be defined following the adoption of the Regional Action Plan. It is clear that the project

cannot cover the vast range of Directives/Regulations/Standards and the purpose of the

Regional Action Plan will be to define and agree the priorities. However, in light of the objectives

of the project, we anticipate that in the second half of 2010, the project will provide direct

support to legal and regulatory drafting linked to the transportation of dangerous goods and

vehicle standards. In view of the fact that the beneficiaries are likely to be fully absorbed with

meeting their commitments under the AETR, it is improbable that we will be able to address

these issues any earlier.

3.3.39 Several of the beneficiary states are not as yet signatories of the AETR. The TA Team

will, if requested, provide advice and technical assistance to those national authorities, which

wish to seek membership and ratify the Conventions and Protocols. The Georgian Association

of Road Transport Operators (GIRCA), for example, has already indicated that they wish to

introduce the digital tachograph amongst their members.

Sub-component 2.2: Strengthening human resource capacities

3.3.40 The activities under this sub-component, although they complement the activities

described under paragraphs 3.3.20 3.3.28 above, are targeted primarily at those involved in

legal and regulatory drafting and metrology/certification/accreditation and enforcement. The

objective is to ensure that the national authorities possess the necessary know-how and skills to

draft legislation and regulations reflective of, and harmonised with, international and EU

requirements.

3.3.41 In order to maximise the effectiveness of the training, the sessions will be directly linked

to other activities planned under the project. Therefore we can say with some certainty now that

training will be provided in the following areas:

the digital tachograph;

the transportation of dangerous goods;

vehicle standards (EURO 3-4-5)


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3.3.42 Additional training topics will be defined in the Regional Action Plan, once the priorities

for legal and regulatory drafting have been clarified.

3.3.43 In addition to the formal training sessions, two study tours will be organised. The first at

the end of 2009/beginning of 2010 will be to UNECE, the European Commission and a Member

State (subject to the requisite agreement being reached with the relevant bodies) and will

examine all matters related to the implementation of the Tachograph. The second Study Tour is

provisionally planned for the second half of 2010 and will focus upon the subject of dangerous

goods.

3.3.44 In order to ensure sustainability, issues related to legal drafting will be included in the

train the trainers programme (3.3.27) and codified into the Training Manual (3.3.26).

3.3.45 The participants of the training programmes and study tours will be selected in close

consultation with the project partners and the TRACECA Permanent Secretariat in Baku.

Sub-component 2.3: Establishment and implementation of ADR Guidelines

3.3.46 This activity is strongly linked with activity 2.1 and aims to assist the Beneficiary

Countries become party to the UN/ECE ADR Agreement. At present only Azerbaijan,

Kazakhstan, Moldova and Ukraine have ratified the ADR Agreement. Most dangerous goods in

the TRACECA region are traditionally transported by rail (e.g. crude oil). However, due to the

growth of road transport in Central Asia, one may reasonably expect a growth in the

transportation of dangerous goods by road. For safety reasons, it would be very advisable that

more countries sign and implement ADR.

3.3.47 The TA Team will assist in the drafting of Road Transport Security Guidelines in line with

the ADR Agreement and will provide information sessions linked to the implementation of the

Guidelines. The Guidelines will be available in the Russian language.

Planned inputs


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3.3.48 The International Transport Law expert (350 man days) will assume primary

responsibility for the implementation of this Component. He will be supported by the Team

Leader (90 man days), the Land Transport Safety Expert (150 man days), and the long-term

junior regional coordinators (750 man days). In addition, a further 225 man days of short-term

senior expertise will be made available to assist with the detailed legal drafting.

Planned outputs

3.3.49 The deliverables for this Component are as a minimum the following:

Support provided to legal drafting with respect to AETR, ADR Agreements

Beneficiary states assisted to meet June 2010 deadline of implementation of Tachograph

Support provided to those beneficiary states wishing to sign the AETR and ADR

Conventions

Staff Training Programme designed and delivered

27 Trainers trained

Training Materials codified into a Training Manual

Two study tours organised and delivered

Road Transport Security Guidelines elaborated

Timing of inputs and outputs

3.3.50 The activities under this Component are, with one or two notable exceptions, not time-

bound. They will be implemented throughout the entire duration of the project. However, it is

possible to state that support to the implementation of the Tachograph will commence

immediately and will be completed by the end of the first quarter of 2010; the first Study Tourlinked to the Tachograph issue will take place in the final quarter of 2009. Work will commence

on supporting the implementation of the ADR in the third quarter of 2010 and the associated

Study Tour will take place during the same period.


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Component 3: Awareness raising and dissemination measures

3.3.51 The objectives under this Component are:

To elaborate and implement an awareness campaign in the field of road and land

transport safety and security;

To elaborate and implement a communications strategy;

To identify and disseminate best practice with respect to land transport safety and

security

3.3.52 During the Inception Phase, it was agreed with the Contracting Authority that the

Contractor would widen the project focus to address issues of road safety generally, but with the

proviso that the link to land transport safety and security be maintained. It was agreed that

funds would be made available through the Incidentals Budget line to support awareness and

dissemination measures.

3.3.53 In our Technical Proposal, we emphasised the importance of changing attitudes and

behaviour if one wished to ensure road and transport safety. Increasingly, this is recognised by

the responsible authorities in the TRACECA countries. Several Ministries of Transport and/or

Ministries of Internal Affairs have started to implement poster campaigns targeted at drink-

driving, speeding, the use of seat belts and child seats. However, these types of campaigns are

still in their infancy. The Georgian Government launched a Road Safety Awareness Day in

October 2009 and the Ukrainian Government intends to make road safety a feature of its

preparations for, and hosting of, the 2012 European Football Championships. In addition, a

number of Non-Governmental Organisations are slowly emerging and are addressing safety

issues. During the Inception Phase meetings were held with a Georgian television producer,

who wishes to develop and broadcast a series on road safety issues.

3.3.54 While we do not wish to deviate far from the suggested activities set out in the Technical

Proposal, we have been able refine them during the Inception Phase. We now foresee the

following activities (sub-components) under this Component:


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Sub-component 1: Assisting the responsible national authorities to prepare awareness

and communications strategies linked to road and land transport safety and security

3.3.55 Awareness campaigns have proved extremely effective in the EU in changing behaviour

patterns of road users and haulage companies. It is proposed in the first instance to develop a

standard template for an Awareness Campaign linked to road and land transport safety and

security, which might then be adapted by the individual beneficiary states for their own usage.

3.3.56 The Awareness Campaign will comprise some of the following:

9 The definition of the objectives of the awareness campaign and the principal

messages to be transmitted

9 Identification of the target populations9 The design of a logo and/or motto for the Road and Land Transport Safety and

Security scheme

9 A description of the optimum way of transmitting the principal messages9 A detailed Action Plan

3.3.57 Given the limited budgets available within this project, but also available to the

beneficiary Ministries, we believe that it would be sensible to commence with theimplementation of a web-based awareness and communications programme. In cooperation

with the TRACECA IGC Permanent Secretariat and ideally utilising both the project web-site

and that of the IGC-PS, the web-based awareness and communications programme would

make available examples of best practice from EU Member States and from the TRACECAcountries.

3.3.58 The first dimension will be focused upon communicating information/progress/seeking

feedback with respect to road and land transport safety and security issues and will be targeted

principally at the public authorities responsible for road land transport safety/security issues. It

would also include the translation and dissemination of European and International policy

documents, regulations and standards. This will be done primarily through the existing formal

communications channels set up within the framework of the TRACECA Programme and in

collaboration with the TRACECA Secretariat. As the ToR suggest this will involve the use of an

interactive website.

3.3.59 The second dimension will be to advise and assist the National Authorities in each of

beneficiary countries to use their own websites as tools for disseminating information to


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Transport Associations, transport users and the general public and for receiving comments on

draft legislation / regulations / standards.

3.3.60 The third dimension would be to use the web-site to disseminate materials on four different

types of best practise: first, examples of legislative and regulatory drafting; second, tools for

collection and analysis of accident / incident data and its incorporation into policy and

infrastructure design decision-making; third, modern enforcement tools and practices; and finally,

awareness materials targeted at getting the safety and security message over to the general

public and transport users.

3.3.61 We would also wish to continue discussions with the Georgian television producer to

determine whether or not the project might participate in and contribute to the preparation and

broadcasting of the television series. We strongly support this initiative. However, it raises

questions of whether and how project funds might be used, what other sources of co-financing

might be identified and the costs of dubbing the programmes into the various languages.

Nevertheless, we believe that this is a major opportunity not only for furthering the goals of the

project but also for raising the profile of the TRACECA. Provisional estimates suggest that the

costs for making the series would be around 40,000 euro to which would need to be added the

dubbing / broadcasting costs. We would like at the very least to pursue this matter further with

the permission of the Contracting Authority. We believe that it would bring enormous value

added in terms of the visibility of the project goals and also the TRACECA Programme.

3.3.62 Throughout the lifetime of the project, the TA Team would be available to provide advice

and assistance to the national authorities to implement their awareness and communications

strategies.

Sub-component 2: Supporting the development of Non-Governmental Organisations

capable of providing high-quality services linked to road and land transport-relatedissues

3.3.63 In the EU Member States, private sector and Non-Governmental Organisations play an

important role in raising awareness and communicating changes to laws, regulations and

standards. In order to achieve a multiplier effect, we will work with CSOs/Transport Owners

Associations/Schools. By providing them with awareness materials and agreeing with them

targeted actions, it is probable that we would reach a far wider audience more effectively. The


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Transport Owners Associations would be addressed through sub-component 1. Under this

sub-component we propose a pilot action targeted at Non-Governmental Organisations.

3.3.64 The example of Georgia is a good one: a number of non-governmental organisations are

becoming involved in raising awareness of road and transport safety issues. We propose to

build upon this example. We intend to identify and provide support to a small number of non-

governmental organisations in three TRACECA countries (one country in each of the three

TRACECA regions). We suggest that the three countries should be Georgia (already developing

such initiatives), Kyrgyzstan and Moldova. We have proposed Kyrgyzstan and Moldova for the

simple reason of sharing the benefits of TRACECA more equitably amongst the beneficiary

states. There are already a large number of actions on-going in both Kyiv and Almaty. In

addition, the regional office for the Western CIS is in Moldova and this will allow economies of

scale in terms of travel / support etc.

3.3.65 The support will take the form of advice, training and the provision of materials. The goal

will be to energise these NGOs and to stimulate them to undertake awareness campaigns

amongst schools and local businesses.

3.3.66 We have provisionally budgeted for a Study Tour to the United Kingdom for both public

authorities and NGOs to witness how the public sector and civil society organisations combine

their efforts in order to raise awareness of road and land transport safety issues. It must be

emphasised that this Study Tour is provisional it will depend very much of whether sufficient

funds remain after the major training activities have been budgeted for. The selection of the UK

as a destination is contingent upon the agreement of the beneficiaries: the UK has been

proposed since it has been at the forefront of developing awareness and communications

materials and has well-developed partnerships between public and non-governmental

organisations.

3.3.67 Finally we would link activities under this Component to those under Component 1,

notably with respect to networking. For example, it would be important for the national

authorities, private sector organisations and civil society structures to network with agencies

(both public and non-governmental) in EU Member States, such as the Royal Society for the

Prevention of Accidents (RoSPA) in the UK, that have a wealth of experience and a wide range

of materials. Such linkages will allow the beneficiaries future access to examples of best

practice and will help sustain the outcomes of this Component.


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Planned inputs

3.3.68 As we stated in our Technical Proposal, we wish to recruit a specialist in safety

awareness issues. We believe that the man days for this position should come from a

redistribution of 200 man days from the Land Transport Safety Expert. We believe that it is

important that the Safety Awareness Expert be perceived as a key member of the team and that

safety awareness issues are acknowledged as central to the successful achievement of the

project objectives. We will submit a formal request for an Addendum to the Contract once the

proposals in this Inception Report have been approved by the EC Project Manager. If this

suggestion is acceptable, the Safety Awareness Expert would assume lead responsibility for

this Component under the guidance and direction of the Team Leader.

3.3.69 In addition, we have allocated 80 man days for the Team Leader and 250 man days for

the long-term junior regional coordinators to this Component.

Planned outputs

3.3.70 The deliverables for this Component are as a minimum the following:

Awareness campaign defined and implemented

Web-based communications strategy designed and implemented

Best practice identified and disseminated

Civil Society Organisations in three pilot countries stimulated to carry out awareness

raising and communications activities in support of road and land safety and security

awareness

One study tour organised and delivered (provisional)

Support provided to prepare and broadcast a television series on road and land transport

safety issues (provisional)

Public authorities, private sector and Civil Society Organisations networked with sister

bodies in the EU dealing with awareness raising and communication of road and land

transport safety and security issues

Timing of inputs and outputs


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3.3.71 To a large extent the timing of the inputs and outputs from this Component are

dependent upon (a) the concept being approved; (b) an Addendum to the contract being signed.

Ideally we would wish to start the activities no later than the beginning of September 2009 and

implement them over a period of twelve months. The advantage of this approach to the timing is

that there would still be 12 months remaining in the project to roll-out the results of the pilot

projects to other beneficiary states.

3.4 Constraints, risks and uncertainties

3.4.1 In our Technical Proposal we identified a series of Assumptions to implementation. During

the Inception Phase, these assumptions were reviewed. The assumptions at the level of Project

Purpose, Results and Activities hold. All the beneficiary countries have shown interest in the

project and have expressed a willingness to provide the necessary resources to support project

implementation and to sustain project results.

3.4.2 Similarly, the Technical Proposal included a detailed Risk analysis. The potential risks

have been assessed during the Inception Phase and a revised risk analysis is set out below.

POTENTIAL RISK COMMENTPotential regional instability The tensions in the Caucuses remain, both within Georgia

and between Armenia and Azerbaijan. However, to date

there is no evidence that these tensions are likely to spill

over into regional instability or impact directly upon project

implementation.

The political situation in Moldova and the deteriorating

relationships between Moldova and Romania are causes

for concern. Once again they are unlikely to impact

directly upon project implementation. However, we will

continue to monitor the situation closely.

Change of policy priorities and personnel at Beneficiary

Government level

Given the length of the project, it is probable that

personnel within the beneficiary Governments will change

(turnover / change of Governments). At present this does

not appear to constitute a major risk to project

implementation. Policy priorities and objectives within the

Transport Sector have remained reasonably consistent

over a number of years and there is no evidence to

suggest that this is likely to change. We do not anticipate

that this risk will have a major impact upon project


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implementation, although frequent changes of personnel

will undoubtedly slow down the decision-makingprocesses.

Lack of co-operation from relevant actors in the Transport

Sector (i.e.: IFIs, other donor agencies, private sector, etc)

in the TRACECA countries

Cooperation to date has been excellent. The IFIs and

other donors have provided information and advice; the

private sector and NGOs have also expressed a

willingness to participate in the project.