transport sector building connections

Transport SectorBuilding Connections

Securing Afghanistan’s FutureAccomplishments and the Way Forward

Asian Development Bank

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Securing Afghanistan’s FutureAccomplishments and the Way Forward

Transport SectorBuilding Connections

Asian Development Bank

South Asia DepartmentMarch 2004

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© Asian Development BankAll rights reserved.

This paper was originally prepared as a draft Technical Annex toChapter 3 of Securing Afghanistan’s Future: Accomplishmentsand the Strategic Path Forward. As such it is also available on theAfghanistan Government’s website (www.af/recosting). Theanalysis and views expressed in this paper are those of the authorsand do not necessarily reflectthe position of the Governors ofADB.

ADB does not guarantee the accuracy of the data included in thispublication and accepts no responsibility for any consequences oftheir use.

Use of the term “country” does not imply any judgment by the au-thors of ADB as to the legal or other status of any territorial entity.

Principal Authors: Mohiuddin Alamgir, Natin Patel,V. N. Gnanathurai, Hideaki Iwasaki, Munawar Alam,Salim M. Qayum, Ravi Khera, and Mahammad RasooliSupervisors: Frank Polman, Tadashi KondoCoordinator: Craig SteffensenEditing and Typesetting: Sara Collins MedinaCover Design: Ram CabreraCover Photograph: Hideaki IwasakiPage Photographs: Hideaki Iwasaki, Munawar AlamAdministrative Support: Jane SantianoFulfillment: ADB Printing Unit

Published by the Asian Development BankP.O. Box 7890980 Manila, PhilippinesWebsite: www.adb.org

ISBN: 971-561-536-8Publication Stock No. 020804

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Contents

TERMS AND ABBREVIATIONS.................................................................................xiFOREWORD .................................................................................................................xiiiEXECUTIVE SUMMARY ........................................................................................... xvBACKGROUND ...............................................................................................................1ORGANIZATION OF THE TRANSPORT SECTOR................................................3Roads and Highways............................................................................................................3Civil Aviation and Tourism...................................................................................................3Road Transport and Traffic ..................................................................................................4Railways ...............................................................................................................................5CURRENT STATUS AND ACCOMPLISHMENTS .................................................7Current Status......................................................................................................................7

Roads.........................................................................................................................7Civil Aviation.............................................................................................................9Road Transport and Traffic .....................................................................................10Railways ..................................................................................................................11

Rehabilitation at Work and Accomplishments....................................................................11Roads.......................................................................................................................11Civil Aviation ...........................................................................................................13Road Transport........................................................................................................14

KEY ISSUES AND CONSTRAINTS..........................................................................15Crosscutting Issues .............................................................................................................15

Security....................................................................................................................15Capacity...................................................................................................................15Public Ownership ....................................................................................................15Efficiency.................................................................................................................15Cross-Border Trade .................................................................................................16Regulation ...............................................................................................................16Accessibility and Gender ..........................................................................................16Environmental Issues...............................................................................................16

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Regulating Safety, Security, and Environmental Protection .....................................17The Handicapped ...................................................................................................17

Roads and Highways..........................................................................................................17The Private Sector ...................................................................................................17Toll Collection .........................................................................................................17Implementation Constraints ....................................................................................17

Civil Aviation and Tourism.................................................................................................18Road Transport and Traffic ................................................................................................18Railways .............................................................................................................................18STRATEGIC VISION, GOALS, AND KEY PRIORITIES.....................................19Strategic Vision and Objective.............................................................................................19Goals ................................................................................................................................19Key Priorities.......................................................................................................................19

Roads and Highways ...............................................................................................20Civil Aviation and Tourism.......................................................................................21Road Transport and Traffic ......................................................................................21Railways ..................................................................................................................22

OUTCOME/SERVICE DELIVERY INDICATORS AND TARGETS................23Roads and Highways ..........................................................................................................23Civil Aviation and Tourism..................................................................................................23Road Transport and Traffic .................................................................................................23Railways .............................................................................................................................24COSTING OF OUTCOME/SERVICE DELIVERY TARGETS ..........................25Roads and Highways ..........................................................................................................25Civil Aviation and Tourism..................................................................................................25Road Transport and Traffic .................................................................................................26Railways .............................................................................................................................27IMPLEMENTATION STRATEGY, INSTITUTIONAL AND FINANCIAL

ARRANGEMENTS, AND CAPACITY............................................................29Roads and Highways..........................................................................................................29

Institutional Structure to Implement the Road Network.........................................29Operation and Maintenance Arrangements and Financing.....................................29Institutional Implications.........................................................................................30Capacity Building and Institutional Strengthening .................................................31Policy Reforms ........................................................................................................32

Civil Aviation and Tourism.................................................................................................32Institutional Setup ...................................................................................................32Human Resources Development.............................................................................33

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Implementation Arrangements ................................................................................33Road Transport and Traffic .................................................................................................33

Institutional Structure to Support Transportation Activities.......................................33Implementation of the Program ...............................................................................34Capacity Building and Institutional Strengthening ...................................................35Policy Reforms.........................................................................................................35

Railways .............................................................................................................................36DEVELOPMENT PROGRAM AND BUDGET....................................................37

APPENDIXES ................................................................................................................41Appendix 1. Road Lengths in Different Road Categories....................................................41Appendix 2. Roads and Highways Network.......................................................................43Appendix 3A. Provincial Roads by Province and District ....................................................45Appendix 3B. Summary for Provincial Roads .....................................................................52Appendix 4. Current Commitments for Roads and Highways (1382–1383/2003–2004) ..53Appendix 5. Update on National Development Budget: Ministry of Civil Aviation

and Tourism Proposed Projects for 1381–1383/2002–2004....................................55Appendix 6. Update on National Development Budget: Ministry of Transport................56

Proposed Projects for 1381–1383/2002–2004Appendix 7. Construction Equipment Availability at the Ministry of Public Works..........57Appendix 8. Transitional Islamic Government of Afghanistan: Policy Statement for

the Transport Sector ................................................................................................58Appendix 9. Financing the Road Sector .............................................................................63Appendix 10. Transport Program Objectives .....................................................................69Appendix 11. Roads and Highways Investment Program 1383–1389/2004–2010............70Appendix 12. Civil Aviation and Tourism Investment Program 1383–1389/

2004–2010 ..............................................................................................................74Appendix 13. Road Transport and Traffic Investment Program 1383–1389/

2004–2010 ..............................................................................................................76Appendix 14. Railways: Dispatch and Receiving Stations Investment Program

1383–1389/2004–2010 ...........................................................................................80Appendix 15. Transport Sector Seven-Year Investment Program in Budget Form

(Disbursement) .......................................................................................................81Appendix 16. Transport Sector Investment Program 1383–1389/2004–2010 ...................84Appendix 17. Transport Sector Seven-Year Investment Program in Budget Format

(Commitment) ........................................................................................................85

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TABLESTable 1. Major Road Network .............................................................................................7Table 2. Road Condition of Selected Corridors in Afghanistan ............................................8Table 3. Travel Time on Primary Road Network, March–April 1383/2002 ........................9Table 4. Distances and Travel Time on Selected Road Corridors, 1383/2004 ....................10Table 5. Estimated Vehicle Fleet, 1382/2003......................................................................11Table 6. Principal Activities Started in the Transport Sector, 1381/2002 ............................12Table 7. Transport Sector Public Investment Program 1383–1389/2004–2010 .................38Table 8. Transport Sector Financing Requirement 1383–1389/2004–2010 .......................39

FIGURESFigure 1. Current Structure of the Ministry of Public Works..............................................4Figure 2. Current Structure of the Ministry of Civil Aviation and Tourism.........................5Figure 3. Current Structure of the Ministry of Transport....................................................6

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Terms and Abbreviations

AACA Afghan Assistance Coordination AuthorityADB Asian Development BankANS air navigation systemA T M air traffic managementCBD capacity-building departmentCNA Comprehensive Needs AssessmentDRS dispatching and receiving stationsGDP gross domestic productICAO International Civil Aviation OrganizationIDP internally displaced people/populationIMF International Monetary FundITGA Islamic Transitional Government of AfghanistanMCAT Ministry of Civil Aviation and TourismM O C Ministry of CommerceM O F Ministry of FinanceM O T Ministry of TransportM P W Ministry of Public WorksM R R C Ministry of Rehabilitation and Rural DevelopmentN G O nongovernment organizationO & M operation and maintenanceP M U project management unitPRR priority reforms and restructuringRCU road construction unitUNDP United Nations Development ProgrammeUNOPS United Nations Office of Project Services

Currency EquivalentsCurrency EquivalentsCurrency EquivalentsCurrency EquivalentsCurrency Equivalents(as of 13 December 2003)

Currency Unit – Afghani (Af)Af1.0 = $0.022148$1 = Af48.15

NoteNoteNoteNoteNote: In this report “$” refers to US dollars.

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Executive Summary

The Sector in ContextAs a landlocked country, Afghanistan relies heavily

on road and air transport. Both are in a very poor state as aresult of long years of conflict and inadequate maintenance.The prolonged state of conflict in Afghanistan has resultedin large-scale deterioration of all infrastructure, especiallythe road infrastructure including damage to critical struc-tures and bridges and the 2.8 km Salang tunnel that pro-vides vital access to the northern part of the country. Thisperiod also witnessed serious depletion of the skilled man-power. Rehabilitation of the transport sector’s physicalassets, improved asset management, and increased institu-tional capacity hold the key to economic development,national integration, and security. The task is formidablegiven that only about 13% of Afghanistan’s 21,000-kilo-meter (km) road network is paved. Neither these nor the18,000 km of unpaved (gravel or earth) roads have beenmaintained over the past 2 decades. Travel time and costhave increased substantially and, combined with the secu-rity situation, have reduced movement of goods and people.Afghanistan has only a tiny railway segment, but plans togive it a role in the future in dispatching and receiving bulkshipments from neighboring countries.

To keep up with increasing traffic volume, to improvemovement of goods and services thereby fostering tradeand commerce, and to promote trade links with neighbor-ing countries, it is essential that the entire primary roadnetwork be rehabilitated on a priority basis. The findingsof the Comprehensive Needs Assessment for the transportsector support this conclusion. The road rehabilitationefforts should not only respond to the current requirementsof domestic trade but also start taking advantage of thepossibilities of expansion of regional trade. The IslamicTransitional Government of Afghanistan (ITGA) hasdeclared that reconstruction and rehabilitation of the road

system, especially of national roads, is the country’s toppriority in reconstruction. To move all types of vehiclessafely and at reasonable cost, creation of an efficient roadtransport and traffic system is also a high priority. Like-wise, rehabilitation and improvement of the air transportsystem will facilitate access to remote areas and the move-ment of people and of low-volume, high-value merchan-dise.

The Ministry of Public Works (MPW), once respon-sible for virtually all government construction and mainte-nance, has lost nearly all its resources for road constructionand maintenance during more than 2 decades of conflict.The Ministry of Rehabilitation and Rural Development(MRRD) is responsible for development of rural infra-structure, including rural roads, but does not even knowhow many kilometers of road that entails.

In civil aviation, a massive rebuilding effort is requiredto bring back the airport infrastructure to a standard thatmeets the desired level of activities at each airport, and thatis in compliance with the standards and recommended prac-tices set by the International Civil Aviation Organization(ICAO). The Ministry of Civil Aviation and Tourism(MCAT) is responsible for operation and maintenance ofthe country’s two international airports at Kabul andKandahar, four major domestic airports, and 17 regionalairports providing access to remote areas.

The Ministry of Transport (MOT) manages what littleremains of the government-owned vehicle fleet and regu-lates the private sector transport industry. Because of theGovernment’s preference for private sector operations,MOT will probably be left with regulatory function,although it hopes to revive some of its operations, even if ata much lower scale than in the past.

For the purpose of the recosting exercise and for addi-tional reference in this paper, Afghanistan’s road networkhas been classified into four categories:

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• National Super Highway/Corridor, to link thecountry’s regions and integrate Afghanistan withneighboring countries to enhance trade and commerce,leading to economic prosperity in the region andreduction of poverty;

• National Highway network, to integrate various prov-inces, and to link up with major resource centers suchas oil, gas and minerals;

• Provincial roads, designed to link important provin-cial capitals with one another and provincial capitalswith district headquarters; and

• Rural roads, to strengthen farm-to-market linkages andopen access to higher order roads to facilitate move-ment of goods and people between rural areas and theoutside world.

Key Issues and ConstraintsMany critical issues confront the transport sector;

some cut across the sector, others are specific to varioussubsectors. Security concerns affect all subsectors, as doeslack of capacity. Bias towards public sector ownership andoperation is still pervasive in all subsectors, calling for apush towards greater private sector participation. The cur-rent arrangements do not promote efficiency and often alsomake it difficult to effectively address matters of publicinterest. Ongoing policy and institutional reforms have tobe pursued with a greater sense of urgency. Cross-bordertrade is constrained by a huge bureaucracy, corruption,and lack of trade facilitation services such as customs com-plexes, warehouse facilities, standardized bulk transportcarriers, and other amenities. With regard to accessibilityand gender, regulation may include standard setting andenforcement, but the issues at hand may require a moreproactive role by the public sector. Environmental aspectsand implications should be considered in all administra-tive, operational, planning, and construction activities. Inparticular, environmental features of vehicles and aircraftmust be given high priority. As in the case of other taxesand levies, toll collection on national and provincialhighways is irregular, unsupervised, and unaudited. Thecurrent state of road transport and traffic highlights theneed for early resolution of key issues such as the role ofthe Government in providing transport services, regulatingprivate users, and achieving socioeconomic objectives ofaccessibility, and the structure of government institutionsdealing with the sector.

Sector Vision andObjectives

The vision of the Government is “to restore and createthe basic transport infrastructure facilities, including roadsand airports, to allow better operation of necessary publicand private transport services in all areas of the country,and international linkages, thereby facilitating economicdevelopment by improving access to markets and reduc-ing poverty. The program focuses on specific interventionsin the primary and secondary road, civil aviationinfrastructure, and essential public transport.”

The objective of this program is to promote nationaland regional/subregional integration, development, andsecurity by restoring, expanding, and improving roads andhighways, civil aviation and transport services that willallow efficient public and private sector operations,strengthen market and international linkages, and createopportunities for the poor to share in the benefits of growthand prosperity, thereby eliminating poverty in the foresee-able future.

The goal of the roads and highways subprogram is torehabilitate and improve the road and highway network;strengthen domestic linkages between the capital, allmajor cities, commercial, industrial production and min-ing centers, and provincial and district headquarters; andstrengthen linkages with neighboring countries, therebyfacilitating economic development. In 2003, Afghanistanhad 0.15 km of paved roads per 1,000 people. The target isto raise this to 0.23 km in 2010 and 0.46 km in 2015, bothwell within the present range for comparable developingcountries.

In the civil aviation and tourism subprogram, the goalis to rehabilitate and improve airports and air transport,together with tourism services. This will bring remoteareas into the mainstream economy, allow improved link-ages and faster travel to and from the rest of the world andwithin the country between major cities and towns. It willalso facilitate movement of people, including tourists, forwhom natural and historical sites of Afghanistan shouldbecome an increasingly attractive destination, and increasetrade in low-volume, high-value goods. The target in thecivil aviation sector is to complete upgrading of 4 interna-tional airports at Kabul, Herat, Jalalabad and Mazar-e-Sharif and 15 major domestic airports. In the case of tour-ism, the effort is to revive the moribund sector and bringback the tourists who are staying away from Afghanistanfor various reasons, primarily lack of security and ameni-

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ties. The target is to develop 20 tourist sites by 2010 andanother 10 by 2015.

In the road transport and traffic subprogram, theGovernment’s role is likely to become more regulatory. Thegoal is to increase and improve the vehicle fleet and main-tenance and allow better operation of necessary public andprivate transport services in all areas of the country. In 2003,Afghanistan had 13.71 vehicles per 1,000 people. The tar-get is to raise the number to 26.71 by 2010 and 40 by 2015,levels achieved by other comparable developing countries.

At this stage, the railway subprogram has the limitedgoal to take advantage of the existing railway networks inneighboring countries that extend to the Afghan border tofacilitate reception and dispatch of bulk shipments at bor-der termini, thereby reducing transport cost substantiallyand increasing cross-border trade. In the railway subpro-gram, results in the first 3 years will focus exclusively onthe establishment of five Dispatch and Receiving Stationsat Islam Qala, Torghundi, Hairatan, Spin Boldak, andTorkham, together with other facilities such as customs com-plexes, truck parking, and dedicated warehouse facilities.

Investment PrioritiesTotal investment requirement over the 7-year period

for the transport sector is $12.3 billion, equally dividedbetween the public and private sector. Of the total publicinvestment of $6.1 billion, 79% or $4.8 billion is for roadsand highways, $0.8 billion for civil aviation and tourism,$0.4 billion for road transport, and $0.1 billion for rail-ways. A total of $2.4 billion in public sector investmentwill be required over the next 3 years, $1.9 billion for roadsand highways, $0.3 billion for civil aviation and tourism,$0.2 billion for road transport and $0.124 billion for rail-ways.

Roads and Highways

Key investment priorities include the Super Corridor(two-lane expansion to make four lanes) (2,323 km) fos-tering regional trade and economic linkages betweenAfghanistan and neighboring countries Iran, Pakistan,Tajikistan, Turkmenistan and Uzbekistan:• Shirkhan Bandar–Pol-e Khomri–Kabul–Kandahar–

Spin Boldak Super Corridor (1,162 km),• Naibabad–Mazar-e-Sharif–Andkhuoy–Herat–

Delaram–Zaranj Super Corridor (1,344 km),• Heart–Islam Qala Super Corridor (124 km),• Delaram–Kandahar Super Corridor (216 km).

Other road sector priorities in the National Highwaynetwork (2,175 km) promoting trade and economic link-ages and extending Super Corridors to provincial capitals:• Farah Road–Delaram Highway (253 km),• East-West Highway (1,267 km),• North-South Highways 1 (775 km) and 2 (776 km),• Khulm–Eshkashem Highway (478 km),• Asadabad–Ghazni Network Highway (817 km), and• Jabal Saraj–Nurestan Network Highway (172 km).

In addition, Provincial Roads (4,484 km), type 1 andtype 2, will improve the administrative, trade, and economiccontacts between district headquarters and respective pro-vincial capitals and between important district headquar-ters. The program also includes Rural Roads (1,500 km)bringing the hinterland in commercial contact with mar-kets and seats of power.

Civil Aviation and Tourism

Key priorities in the civil aviation and tourism sub-program include the following public investments:• Upgrading of Kabul Airport to a full-fledged interna-

tional airport meeting ICAO standards;• upgrading Herat, Mazar-e-Sharif, and Jalalabad air-

ports to international standards;• Upgrading 15 major domestic airports at Konduz,

Feyzabad, Bamian, Chaghcharan, Yakawlang,Sheberghan, Meymaneh, Taloqan, Gardeyz, Khowst,Zaranj, Bost, Badakhshan, Qal’eh-ye Now, andKhawahan; and

• Establishment of an appropriate air traffic managementsystem (ATM) that meets international standards.The key priority for tourism is the development of 20

national tourist sites.

Road Transport and Traffic

In the road transport and traffic subprogram—with-out any prejudice to ultimate policy decision by the Gov-ernment—the key priorities include• Afghan International Transport managing a 75-truck

fleet facilitating movement of strategic materials toremote areas;

• Millie Bus Company managing a fleet of 963 busesmostly in Kabul and other major urban centers easingpressure on mass transit;

• Establishing/rehabilitating six technical and mainte-nance workshops, two at Kabul and one each atKandahar, Heart, Mazar and Jalalabad;

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• Reviving the trolley bus system in Kabul;• Constructing four transport terminals in Kabul

reducing pollution and congestion and improving pas-senger comfort;

• Constructing/rehabilitating 22 administrative build-ings for transport management; and

• Regulating the vehicle fleet.The key priority in the railways subprogram is the

construction of Railways Dispatch and Receiving Stationsat Islam Qala, Torghundi, Hairatan, Spin Boldak, andTorkham to handle bulk shipments from and throughneighboring countries.

Financing RequirementsCurrent commitments for the transport sector include

$997 million for the road sector from both bilateral (India,Iran, Italy, Japan, Saudi Arabia, United States) and multi-lateral aid providers. This amount covers much of theSuper Corridor network, 1,000 km of National High-ways, 326 km of provincial roads, and a small number ofrural roads.

The total assistance package committed so far for thecivil aviation sector amounts to $9 million in 1381/2002,$16 million in 1382/2003, and $11.5 million in 1383/2004,a total of $37 million. More than 50% of this amount, or$19.3 million, provided by the World Bank, is earmarkedfor Kabul airport. Other donors include ADB, India,Japan, and United Kingdom.

The total assistance package committed so far for thetransport sector to acquire buses amounts to $36.4 million,equally divided between India and Japan.

The entire amount of the additional public investmentrequirement for 1383–1389/2004–2010 period will have tobe financed with fresh commitments from bilateral and multi-lateral aid providers. Additional commitments would haveto be made by donors in 1389/2010 for subsequent invest-ments during the 1390–1394/2011–2015 period to achievetargets set for 1394/2015. The amount of funding commit-ment required is $932 million in 1383/2004, $426 million in1384/2005, $1,137 million in 1385/2006, $3,689 million in1386/2007 covering the period 1386–1388/2007–2009, and$4, 904 million in 1389/2010 for the 5 years after that.

Implementation StrategyWith present capacity, none of the ministries in the

transport sector is in a position to deliver its traditional

output and services. The construction unit of MPW hasalmost no equipment; likewise with MCAT and MOT.Lack of skilled staff in ministries is severely affecting theirability to plan, design, contract, and implement projects. Ageneration of professional expertise was lost during theconflict, as most of the capable and qualified staff left thecountry. The small number of professionals who stayed inAfghanistan is reaching retirement age. Due to lack ofadditional training during the conflict period, a large gapin capacity needs to be filled by recruiting and training anew generation. The lack of skilled staff has also led todelays in approval of projects and other activities. The sal-ary structure of government employees provides littleincentive for the staff to put in extra effort and stay with theGovernment. This is now being addressed through thePriority Reforms and Restructuring program. Many of thestaff trained under projects or technical assistance leave gov-ernment jobs for better remuneration being offered by themany consultants and contractors; thus skilled staff arebecoming even scarcer.

The Transport Sector Review recommended that trans-port ministries set up a capacity building department(CBD) with three international experts for a 3-year periodand other short-term expertise from time to time. This unitwill work closely with a number of staff from each ministryand provide hands-on training in a number of areas. TheCBD’s main task would be to facilitate reform of the min-istry. An alternative would be to establish an MPW projectmanagement unit (PMU) with domestic and internationalexperts and staff (including Afghan expatriates), to man-age the entire program of road and bridge constructionunder the ministry, from the feasibility stage right throughto execution, including design, procurement, contractadministration and supervision.

Infrastructure investments need to be underpinned bya strong institutional and regulatory framework. It willtherefore be essential to restructure the transport sectorinstitutions to create an efficient administration. Further, astrong regulatory framework needs to be put in place toprovide efficient services to the public irrespective ofwhether these are provided by the private sector or the pub-lic sector. Attention has to be paid to financing arrange-ments and cost recovery. Besides, with overall planning,strategy articulation, project design and implementationcapacity so weak, an exceptional effort would have to bemade to buy/borrow this capacity from abroad during aninterim period while a serious program for Afghanizationof Afghan development and administration is put in placefor substantial takeover within the planning period.

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Institutional ReformMPW will have to be reformed into a lean organiza-

tion with the primary task of planning countrywide policyand the countrywide road network, setting standards(including technical, safety, social and environmental safe-guards), regulating and enforcing the regulations, and man-aging the Super Corridor and National Highways networks.MPW will be responsible for the contracting out of worksrelated to the super corridor and national highways.

The provincial highways will be the responsibility of theprovincial governments. But since many of them will have toupscale their capacity to be able to implement projects of sucha large nature, MPW will assist them in undertaking the con-struction activities, using a model similar to that for the SuperCorridors and National Highways. Rural roads will continueto be the responsibility of MRRD.

MCAT will be left with clearly defined roles thatfocus on (a) policy and strategy formulation, (b) planningand budgeting, and (c) data base creation and maintenance.The airports of the country will be managed by a numberof airport companies. Ariana Afghan Airlines will be runwithout government involvement in commercial oroperational matters.

The primary function of MOT will be strategic plan-ning, policymaking, regulation and enforcement, and safe-

guard policies related to social issues, the environment,and gender and other crosscutting issues. MOT will beseparated from operational functions. Most of the trans-port sector—public transport, bus, truck, and taxi—willbe in the hands of private operators. For the public vehiclefleet, the best eventual option is to privatize. Until then,government trucks, buses, and trolley buses will be oper-ated on a commercial basis under three separate commer-cial entities: a truck agency, a Millie Bus agency, and atrolley agency. Vehicle support services, including work-shops/depots and terminals, will be operated in a similarfashion.

RisksThe transport sector program faces several risks.

Political instability is one. The outcome of the Loya Jirgaand election will determine the political landscape of thecountry. Security will remain a threat until national secu-rity forces are able to contain terrorist acts, disturbances,and factional conflicts. The Government’s commitment topolicy and institutional reforms may weaken followinginstallation of a popular administration. The capacity build-ing process may remain very slow, making field-level imple-mentation of projects difficult.

1

As a landlocked country lacking railways andfunctioning river ports, Afghanistan relies onsurface and air transport for the movement of pas-

sengers and goods. Most transport needs are met by roadtransport, which is one of the most vital elements in thecountry’s infrastructure: in addition to moving goods andpeople from one part of the country to another and deliver-ing necessary imports, it plays a major role in deliveringhumanitarian aid and facilitating the return of refugees.

The prolonged state of conflict in Afghanistan hasresulted in large-scale deterioration of all infrastructure inthe country, especially road infrastructure: critical struc-tures and bridges, and the 2.8 km Salang Tunnel provid-ing access to the northern part of the country, have beendamaged or destroyed; roads that were originally con-structed to a high standard have fallen into disrepair and/or show signs of severe aging, embrittlement, and loss ofbitumen. Repairs or partial repairs have been carried outand overlay applied, in most cases without proper engi-neering considerations.

In addition to roads, Afghanistan relies significantlyon the civil aviation sector toovercome the isolation ofwidely dispersed communitiesin remote locations and moveinternational and domesticpassengers. In civil air trans-port, paved runways have suf-fered the same fate as the roads.In addition, virtually all of theformer aviation communica-tions system is destroyed or notoperating, and the country hasno functioning navigation aidsor meteorological facilities. Inall transport sectors, the stateof conflict resulted in a cata-strophic loss of skilled man-power due to flight from thecountry.

The revival of Afghanistan’s economy and the resump-tion of economic growth depend critically on the recon-struction and rehabilitation of transport infrastructure, es-pecially road transport. To keep up with increasing trafficvolume, to improve the movement of goods and servicesfostering trade and commerce, and to promote trade linkswith neighboring countries, the entire road network mustbe rehabilitated on a priority basis. This conclusion is alsosupported by the findings of the Comprehensive NeedsAssessment (CNA) for the transport sector.1 Improved roadnetworks mean faster and more efficient movement of goodsand people around the country and better links between Af-ghanistan and its neighbors, stimulating production and com-merce and laying the foundation for longer-term sustainableeconomic growth, social development, national integration, andpolitical unification.

Improved road networks aid poverty reduction by pro-viding a large part of the population—including women and

Chapter I

BACKGROUND

1 The transport sector CNA was based on the findings of a joint donors’mission in March 2002. The report was finalized in May 2003.

Background

PHOTO

�Before�:like87�ofallAfghanistan�sroads�thishighwayinBamianprovinceremainsunpaved�

2 Securing Afghanistan’s Future: Transport Sector

other disadvantaged groups—with better access to op-portunities of all kinds: employment and livelihood,selection of goods, informal trade, and private sector growth.Better communication between places and people willimprove security and stability, help resolve ethnic tensions,and promote informal trade among the country’s sections.

The rehabilitation and reconstruction of road trans-port infrastructure, much of it labor intensive, will alsocontribute directly to employment and income generation,especially of refugees and excombatants, thus contributingto poverty reduction and social sta-bility. A wide range of directopportunities would open up forthe private sector in road construc-tion, machinery construction, andmaintenance, as well as transportand travel amenities and services.The maintenance of an improvedroad system, moreover, will neces-sitate a corps of permanent employ-ees, potentially including refugees,internally displaced persons(IDPs), and other poor people.

Improved transport wouldgenerate revenue for the Govern-ment. An increased volume oftransport would directly generatetolls, while the economic growthgenerated by a rehabilitated roadsystem would indirectly increasethe amount of tax revenue from in-come, corporate, and trade taxes,tariffs, and other fees.

A strengthened transport system will serve regionalinterests; international “Super Corridors” will promoteregional and international trade, a national network willpromote domestic and international trade, while provin-cial and rural roads will strengthen inter- and intrapro-vincial and district linkages and accelerate local economicgrowth. Rural roads in particular are seen as an instrumentof rural development, facilitating access to markets and toeconomic and social services, including education andhealth care. International transport corridors through Af-ghanistan may once again establish the country as a tradehub, generating additional investment in road construc-tion and rehabilitation, saving on travel time and travelcosts, increasing road freight traffic and hence tolls, andpromoting the country’s overall economic development.

Road transport development will promote conserva-tion of the environment by (1) improving the supply of

fuel, thereby reducing pressure on forests for fuelwood;(2) improving vehicle fuel efficiency, thereby saving fueland reducing pollution; (3) stabilizing embankments; (4)preventing erosion; and (5) reducing permanent loss ofagricultural land from encroachment by vehicles alongroads.

Therefore, to keep up with increasing traffic volume,improve the movement of goods and people thereby pro-moting trade and commerce, and facilitate trade links withneighboring countries, Afghanistan’s primary road network

must be rehabilitated on a priority basis. The CNA find-ings for the transport sector support this conclusion. TheIslamic Transitional Government of Afghanistan (ITGA)has declared that reconstruction and rehabilitation of theroad system, especially of national roads, is a top priority inthe country’s reconstruction.

Similarly, the rehabilitation and improvement of thecountry’s air transport system will facilitate the movementof people and low-volume, high-value merchandise.

As the population and the level of commerce inAfghanistan increase and the roads improve, the vehiclefleet, of necessity mostly privately owned and operated, willincrease in size. This growth, however, has to be regulatedto ensure safety, protection of the environment, and the ef-ficiency and efficacy of local and long-distance passengerand cargo transport services. The public sector role will beconfined primarily to this regulatory function.

PHOTO

ThisstretchoftheRingRoadbetweenPol�eKhomriandM

3

Roads and Highways

Before the protracted hostilities, the Ministry ofPublic Works (MPW), through its 15 departments,was responsible for virtually all government con-

struction and maintenance, including roads and bridges,airports, public housing, water supply, etc. All aspects ofplanning, design, construction, and maintenance were car-ried out through a number of MPW in-house construc-tion companies. Before 1992, just one of MPW’s depart-ments, Road Construction and Development, had morethan 5,000 employees. MPW was responsible for construc-tion and maintenance of primary and secondary road net-works in the country, but also had a multitude of otherresponsibilities such as airport and housing construction,water supply, city planning, collection of road tolls, main-tenance of airport pavements, and the management of sev-eral state-owned construction units for housing, roads, andairports. MPW was charged with carrying out all construc-tion and maintenance work utilizing force account. Withmore than 6,000 staff that were ill-equipped to performtheir duties, it was a significant challenge for MPW to carryout its responsibilities effectively.

MPW has now simplified its activities by increasinglyhanding over operations to private contractors and focus-ing more on road management. But, during the more than2 decades of conflict, MPW lost nearly all its resources forroad construction and maintenance and has neither thefunds nor the institutional capacity to undertake even rou-tine maintenance2 of the road network. Clearly these defi-ciencies must be addressed if a road network is to be reha-bilitated, constructed, and sustained.

The total current staffing of MPW is 2,200 persons.The ministry’s mandate covers the following activities:• road infrastructure planning,• road construction and maintenance,• road tolls collection,• survey and design,• vehicle maintenance (of its own vehicles and equip-

ment),• airport design and construction (not maintenance),• inland waterway terminals, and• railways.The present organization structure of MPW is shown inFigure 1 below.

According to the Transport Sector Review, the Minis-try should not try to restore the construction and mainte-nance capacity that it once possessed. The way forwardshould instead be to engage the private sector in road con-struction and maintenance work. The Ministry could, how-ever, retain a capability to carry out emergency repair andmaintenance and routine maintenance. The Ministry henceneeds to reorganize its maintenance units, which it hasbegun doing under the Government’s Priority Reforms andRestructuring (PRR).

The Ministry of Rehabilitation and Rural Develop-ment (MRRD), which has the responsibility for provisionof health care, education, and other rural socialservices, is responsible for development of rural infrastruc-ture, including rural roads.

Civil Aviation and TourismThe rehabilitation of civil aviation infrastructure in

Afghanistan is urgently needed to support regular publictransport air services on both international and domesticroutes and overflights. To bring back the infrastructure ateach airport to a standard that meets the desired level of

Chapter II

ORGANIZATION OF THETRANSPORT SECTOR

2 Sealing of surface cracks, repair of guardrails, cleaning of drainingstructures, pothole and edge repairs, and removal of vegetation and otherobstructions to improve sight distances and safety.

Organization of the Transport Sector


civil aviation activities, and that is in compliance with thestandards and recommended practices set by the Interna-tional Civil Aviation Organization (ICAO), will require amassive rebuilding effort.

The Ministry of Civil Aviation and Tourism (MCAT)is responsible for operation and maintenance of thecountry’s two international airports at Kabul and Kandahar,3

four major domestic airports, and 17 regional airports pro-viding access to extremely remote areas. In addition,MCAT owns the national airline and major hotels and isalso responsible for promoting the tourism industry andproviding related services.

MCAT, in respect of civil aviation, is divided into eightpresidencies (Figure 2), whose responsibilities are dividedas follows:• Operations: operation and safety of 22 airports3;• Meteorology: meteorological services to civil aviation;• Technical: communication, navigation and surveil-

lance, electrics, and mechanics;• Documents and Liaison;• Law and Regulations issued by MCAT institutional

presidencies;• Planning: in charge of projects, financial and technical;• Kabul International Airport: in charge of the airport;• Administration/Finance/Human Resources: nontech-

nical aspects of the Ministry; and• Tourism.

In addition, Ariana Airlines has a presidency.

The current staffing level is about 1,200. The report-ing system is complex. The current system mixes safetyand operational functions. The ministry seems to be a vic-tim of indecision as to what its role should be. Moreover,under the current political and security situation, its rolein promoting tourism is very limited. MCAT has alreadytaken steps to increase private sector participation in thecivil aviation and tourism sectors, especially in hotels andrestaurants. The Government plans to privatize ArianaAirlines and encourage private investment in terminalbuildings.

Road Transport and TrafficThe Ministry of Transport (MOT) manages the gov-

ernment-owned vehicle fleet and regulates the private sec-tor transport industry. MOT was established in 1979, priorto which it was a department under the Ministry of Com-merce (MOC). Before 1978, freight and long distance busservices were left to the private sector, while the public sec-tor played a role in Kabul bus service. New legislation in1978 authorized the Government to provide nationwidefreight and passenger services. Figure 3 gives the currentorganizational structure. In 1990, MOT reportedly con-trolled 1,600 trucks, 1,000 buses, and extensive workshops.All are now lost. This reduction in fleet has hollowed outits enterprises, which have been cut from nine to three.MOT provincial checkpoints that once tracked perfor-

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Dept.Supervisor

& Controller

Dept.Planning

Advisers

Dept.Administration

Dept.Secretary

Dept. Survey &Design Roads

& AirportsEngr. Salek

Dept. RoadMaintenanceEngr. Zahad

Dept. RoadConstruction

& AirportGen. Abdul

Qasim

Dept.Technical

DeputyMinister

Dr. Yakub

Minister of PublicWorks

Dr. Abdullah Ali

Figure 1. Current Structure of the Ministry of Public Works

3 Kandahar is temporarily not under MCAT operational jurisdiction.

5

mance and location of its fleets and all other traffic nowmonitor only private vehicles.

With a current staffing level of 1,180, MOT’s pri-mary function now is coordinating agreements between pri-vate sector and international transporters and establishingeight offices in neighboring countries to facilitate interna-tional trade. Over 70% of the staff are in the private sectordepartment, which sets technical standards for private com-mercial vehicles and inspects them for compliance duringthe licensing/renewal process. MOT’s private sectordepartment collects a fee of 5% per carriage contract fromprivate trucks and 3% per trip from interprovincial privatebuses, based on authorized charge rates (no fee for taxis).These fees are collected at national or provincial bordersor the outskirts of major cities at locations shared with

MPW toll stations. (The collection of tolls was recently haltedbut not fees.)

RailwaysThe Government is eager to weigh the options of having

rail links with neighboring countries, including Pakistan, Iran,Turkmenistan, and Uzbekistan, to foster trade and bring inbulk goods from these countries. The main structures requiredare receiving and dispatching stations on the Afghan side ofneighboring countries’ border rail termini to handle bulkgoods. The physical facilities would be the responsibility ofMPW, while operations would be under the Ministry of Com-merce. MPW is considering a new Railway Department.

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Minister of CivilAviation & TourismDr. Zalmai Rasuli

PresidentDocuments &

LiaisonQazi Nasr

Ahmed

PresidentLaw &

Regulation(vacant)

PresidentArianaAirlines

Capt. JahidAzimi

PresidentMeteorology

Qadir

PresidentOperationsBashar Yar

GeneralManager

Kabul AirportGhulam Ali

Timur

21 Airports other21 Airports other21 Airports other21 Airports other21 Airports otherthan Kabul Airporthan Kabul Airporthan Kabul Airporthan Kabul Airporthan Kabul Airport

PresidentTechnical

Atahi

Linkage with MPW

PresidentAdministration

Md. Shafiq

PresidentPlanningQadri

PresidentTourism

Hisamuddin

President HotelEnterprises

Lt. Gen. Md.Yakub Nuristani

Intercontinen-tal Hotel

(on 15–yearcontract)

Figure 2. Current Structure of the Ministry of Civil Aviation and TourismFigure 2. Current Structure of the Ministry of Civil Aviation and TourismFigure 2. Current Structure of the Ministry of Civil Aviation and TourismFigure 2. Current Structure of the Ministry of Civil Aviation and TourismFigure 2. Current Structure of the Ministry of Civil Aviation and Tourism

Organization of the Transport Sector

School

Dpy. MinisterAdministration

(vacant)

Dpy. MinisterTechnical Eng.

Raz Mohd.Alami


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Figure 3. Current Structure of the Ministry of TransportFigure 3. Current Structure of the Ministry of TransportFigure 3. Current Structure of the Ministry of TransportFigure 3. Current Structure of the Ministry of TransportFigure 3. Current Structure of the Ministry of Transport

Dept. Agencies inProvinces Kahmaz Agencies: – Pol-e Khomri (5) – Kandahar (6) – Herat (7) – Mazar-e-Sharif (8) – Helmand (9)Station Tech Services inHaritanGovt. Provincial Tpt.Agencies:Mini Buses(i) Balkh, (ii) Jowzjan,(iii) Herat, (iv) Pol-eKhomri, (v) Kandahar,(vi) Jalalabad, (vii)Paktia, (viii) Bamian,(ix) Parwan, (x) Kanduz

Dept. ofPlanningShafiq

(38 persons)

Dept. ofTransporta-

tionMd. Akhtar(75 persons)

Minister ofTransport

Saed Md. Ali Javed

Dpy. MinisterTechnicalDr. Abdul

HaudiMousani

TechnicalAdviser

Dr. AbdulHabib Siar

Dpy. MinisterUtilization/

BenefitsSaid Sadi

Mutaphkar

Dept. Relations& DocumentsAnwar Hadait(34 persons)

Dept. ofAdministration

Md. HasinNajrabi

(138 persons)

Dept. of Inflow/Outflow Funds

BalancingSaif-o-Rahman(14 persons)

Dept. of PrivateSector

Abdul JalilAmdard

(834 persons)

Dept. of Tech-nical Services

Er. Faizal(15 persons)

Dept. of Supply& ProcurementGhulam Abbas(29 persons)

Central Dept. TransportEnterprisesLoading Trucks: – Kahmaz Agency (2) – Kahmaz Agency (3) – Kahmaz Agency (4) – Mini Bus Agency (1)Private Sector(Transport Agencies fromAbroad)Peshawar (Pakistan)Quetta (Pakistan)Mashad (Iran)

7

Current Status

Roads

The road network (Table 1) comprises about 6,000kilometers (km) of national roads, of which 3,300km are primary highways, including 2,400 km of

roads that were once paved and now are not. The primaryroad network comprises the ring road connecting themajor cities of Kandahar, Herat, Mazar-e-Sharif and Kabul.It also includes the international links with Iran, Pakistan,Tajikistan, Turkmenistan, and Uzbekistan.

The Transport Sector Review provided data onnational primary and secondary road segments as well as

provincial road segments (Appendix 1). For purposes ofthe recosting exercise, and for additional reference in thispaper, Afghanistan’s road network has been classified intofour categories, which differ from the classification shownin Table 1:

• The Super Corridor4 is intended to integrate Afghani-stan with neighboring countries in the region to en-hance trade and commerce, leading to economic pros-perity in the region and reduction of poverty (Appen-dix 2).

• The National Highway network5 is intended to inte-grate the various provinces, and to link commercial cen-ters with major resource centers, such as those for oil,gas, and minerals (Appendix 2).

• Provincial roads6 are designed to link provincial capi-tals with district headquarters and also to link impor-tant provincial capitals with one another (Appendix 3).

• Rural roads7 are intended to strengthen farm-to-mar-ket linkages and also to open access to higher-orderroads, to facilitate movement of goods and peoplebetween rural areas and district and provincial citiesand beyond.The total mileages shown in Appendixes 2 and 3 differ

from Table 1 because these estimates are more recent andare geared to the proposed investment program.

The physical condition of the national primary roadnetwork varies from one segment to another (Table 2). Forexample, the 615-km Sheberghan-Herat section of the ringroad is only partly constructed and is generally unpaved.Only 26% of national roads remain in fair condition; theproportion in poor condition has increased to 54%. Largesections of the roads in the south (Kabul-Kandahar-SpinBoldak) and east (Kabul–Jalalabad–Torkham) have beenlost, i.e., they have deteriorated to unpaved status. The con-

Chapter III

CURRENT STATUS ANDACCOMPLISHMENTS

4 Four lanes of dual 7-meter carriageway and 2-meter paved shoulders oneach side, with a central berge of 2–2.5 meters covering all stretches.

5 Two lanes of 7-meter carriageway and 2-meter paved shoulders on eachside.

6 Provincial roads have two specifications. For ordinary Type 1 segmentsthey are 5.5-meter carriageway and 1-meter gravel shoulder on each side.For more important segments designated as Type 2, they include 2 lanesof 7-meter carriageway and 1.5-meter one-layer paved shoulder on eachside.

7 Five-meter earthen road with 1-meter shoulder on each side.

Current Status and Accomplishments

Road Classification Length (km)

National Primary 3,280National Secondary 2,785

Subtotal 6,065

Province Primary 8,882Province Secondary 6,043

Subtotal 14,925

Total 20, 990

TTTTTable 1. Major Road Network

Source: Asian Development Bank, United Nations Develop-ment Programme, and World Bank, Comprehensive NeedsAssessment, Transport Sector, Final Report, August 2003.


crete road in the west (Kandahar–Herat–Torghundi) is onlypartly traffic-worthy due to joint failures and other dam-ages. Only the road to the north (Kabul–Pol-e Khomri–Konduz–Mazar-e-Sharif) is generally in a better conditionafter the Salang Pass. Between Kabul and Salang Pass, re-placement of 13 bridges, reconstruction on some sections,and deep patching and strengthening on other sections arerequired. The Salang Pass, at 3,300 meters elevation, is amajor constraint, as the road is badly damaged and useable,over about a 10-km section that includes the tunnel, onlyfor one-way operation.

Though the pavement structure has been severely dam-aged, the road embankments have stood up reasonably welldespite two decades of neglect and conflict conditions. Theeffect of military actions is more pronounced in the form ofdamaged bridges.8 Some road improvement activities wereundertaken during the Taliban period (1996–2001). Thisincludes asphalt overlay on a 50-km section of the Kabul–Kandahar road, beginning from the outskirts of Kabul. Al-though all 50 km received the base course, the wearingcourse could only be laid on some 40 km. Similarly, about195 km of the concrete Kandahar-Herat road was repaired,i.e., transverse cracks were sealed to provide a better riding

surface. It should also be noted that, in the absence of anygovernment-financed initiative, enterprising transportersthemselves were undertaking patching and minor repairworks, particularly on the Kandahar-Spin Boldak road, toreduce vehicle-operating costs.

The remaining network, comprising 2,700 km of sec-ondary national roads and 15,000 km of provincial roads, iseither gravel or earthen. The coverage and condition detailsof the tertiary road network, consisting of village accessroads, are simply not known,9 except that these roads are allunpaved. Provincial roads, integrating the districts with pro-vincial capitals, total some 9,000 km; similarly, rural roadsare planned for access to market centers and economic andsocial services, and will also facilitate the return of refugeesand IDPs. Though the road density of 0.03 km of road persquare km and 0.96 km per 1,000 people is far lower than inmost developing countries, the road net-work touches all the major population centers and reaches—to a certain extent—remote areas. The recorded traffic onthe primary network during the preconflict period varied be-tween 250 and 1,000 vehicles per day. Recent field visits haveconfirmed that the traffic levels were approaching and, insome cases, exceeding these figures.

8 For example, 11 bridges have been damaged between Kabul and Mazar-e-Sharif, 1 between Kabul and Torkham, and 2 between Kandahar andSpin Boldak.

9 According to rough estimates this is about 15,000–20,000 km.

Sher Khan Bandar–Pol-e Khomri 138 32 21 44Doshi–Salang–Kabul 188 30 108 50Kabul–Kandahar 510 52 20 423 5Kandahar–Spin Boldak 101 7 49 34 2Hairatan–Naibabad 57 57Naibabad–Pol-e Khomri 164 10 100 54Naibabad–Mazar-e-Sharif 26 26Mazar-e-Sharif–Andkhuoy 199 160 39 1Andkhuoy–Herat 550 550 8Herat–Delaram 348 75 65 70Delaram–Zaranj 213 213Torghundi–Herat 116 116Andkhuoy–Aquina 35 35

Notes: Pavement Condition: Fair = needs normal maintenance; Unsatisfactory = asphalt commenced crackiing/concrete joints andslab corners cracking; Bad = noasphalt or concrete (unpaved). All roads need paved shoulders 1.5–2.0 meters wide.Source: Staff assessments.

Distance(kilometers)

Bridges to beRehabilitated

Pavement Condition (km)BadUnsatisfactoryFairCorridor

Table 2. Road Condition of Selected Corridors in Afghanistan

9

More than 2 decades of conflict and lack of mainte-nance, however, have rendered the country’s road networkof little use. Rural roads have suffered more than othersfrom the use of heavy military vehicles and changes in roadalignment to suit military purposes. The inefficacy is madeworse by damaged structures and the presence of mines.Very few villages have all-weather access, and no traditionof community-based maintenance of rural road infrastruc-ture exists: rural roads financed by international aid provid-ers and constructed during the conflict period as food-for-work programs through nongovernment organizations(NGOs) have rapidly deteriorated due to lack of mainte-nance.

The condition of the roads is also reflected in traveltime. During field visits in March–April 2002, data werecollected on actual travel duration for a four-wheel drivevehicle on major road sections (Table 3). Further researchhas revealed that there will be substantial saving in travel timewhen road improvements are put in place (Table 4). In someof the segments, travel time savings will be in excess of 50%.The potential savings in time over international link corri-dors augur well for subregional trade expansion over land.There will be considerable economic benefit from increasedtrade, saved time, and reduced travel cost.

Civil Aviation

Because of the deterioration in civil aviation infrastruc-ture, MCAT now lacks the capacity to provide an air trafficmanagement (ATM) service for Afghan airspace. Safetyof flights over Afghanistan cannot be assured with theexisting controllers and technical support staff, and withthe available communication, surveillance, and navigation

systems. In the event the international forces withdraw theirpresent level of airspace management, which does notinclude provision of air traffic control services beyond thevicinity of the airfields they operate, a serious flight safetysituation will arise.

Afghanistan’s airspace, due to its strategic geographi-cal location, offers one of the shortest routes between Asiaand Europe. Keeping Afghanistan’s airspace open to inter-national overflights broadly benefits the international com-munity as well as the country itself.

In the 1970s, two Afghan carriers provided air trans-port services, one for international and the other for domestic use, transporting yearly as many as 146,000 pas-sengers and 1.01 million tons of freight. Today the singlenational airline, Ariana Afghan Airlines, has lost most ofits fleet and staff as a result of the conflict, but since theend of the war it has regained some lost ground. Arianacurrently owns eight aircraft, which fly to 13 destinations.As expected, Ariana has been plagued by weak leadership,lack of skilled staff, and poor fleet quality. Foreign airlines,including the United Nations Humanitarian Air Services,are operating flights into and out of Kabul and other desti-nations in the country.

Afghanistan has two major air gateways: Kabul Inter-national Airport, serving the capital, and Kandahar Inter-national Airport, serving the south of the country. The twoairports were operated in the past under instrument flightrules with day and night operations. Four major domesticairports10 with airside pavements provide air connection tothe major cities. In addition, 16 regional domestic airports11

are spread over the country serving the smaller, moreremote areas. These airports have mainly gravelled airsidefacilities and operate under visual flight rules.

The aircraft designs assumed for Afghanistan airportsare B767/B747 for international,B737/ B727 for major domestic, AN24/F28 or smaller for regional, and TwinOtter or smaller for subregional air-ports.

Although the original constructionstandard for runways was high, overyears of conflict and poor maintenance

10 At Herat, Jalalabad, Kunduz, andMazar-e-Sharif.

11 At Bamian, Bost, Chaghcharan, Darwaz,Feyzabad, Farah, Khowst, Khwahan,Kron Monjan, Meymaneh, Qal’eh-yeNow, Sheberghan, Sheghnan, Taloqan,

Tarin Kowt, and Zaranj.


Kabul–Torkham 2,035 65 29Kabul–Kandahar 2,720 72 36Kandahar–Spin Boldak 105 2.5 42Kandahar–Herat 560 8.5 64Kabul–Mazar-e-Sharif 399 15 27Mazar-e-Sharif–Hairatan 57 2 38Pol-e Khomri–Shirkhan Bandar 164 12 14

Source: ADB, UNDP, and World Bank,Transport Sector Review, 2003.

CorridorDistance

(kilometers) Travel Time

(hours)

AverageSpeed(km/hr)

Table 3. Travel Time on Primary Road Network,March–April 1381/2002


the quality has markedly deteriorated with aging,embrittlement, loss of bitumen, cracking, loss of stone, andpotholing. Existing asphalt pavements will need asphaltoverlays to restore proper longitudinal and cross sectionsand surface texture. No airport has standard pavement mark-ings and most have none at all. Runway strips are not welldefined and, in many cases, strips are now overgrown withweeds and contain other obstructions like rocks, boulders,and war wreckage. Terminal buildings are in poor condi-tion, with few amenities such as baggage handling facili-ties, restaurants, modern heating, lighting, toilets, or plumb-ing. Airport rescue and fire service is also in a poor state,with little equipment and limited mobility. All car parksand access roads are in poor condition.

Existing security arrangements are lax and the trespass ofunauthorized persons and animals onto airport property is com-mon. Electricity supply is unreliable at all airports. Controltower operations and communications fall far short of mini-mum international standards. No airport has lighting or morethan rudimentary visual aids except for temporary militaryinstallations at Kabul and Kandahar. All such facilities wouldhave to be reconstituted from scratch. Organized, regular air-port maintenance activities are currently nonexistent. Airportplans and surveys are not available and none of the airports

seems to have a masterplan. The current stateof civil aviation callsfor a significant initia-tive to put the sector atpar with internationalstandards.

In addition to themassive rehabilitationand constructionneeds to improve theairports and the criti-cal capacity buildingnecessary for MCATto operate and main-tain them, other criti-cal issues on whichaction must be taken toraise the aviation sec-tor to internationalstandards include thefollowing:• negotiation ofbilaterals on trafficrights and other con-cerns,

• a route licensing system for aviation traffic,• the relationship between Ariana and the Government,• corporatization of airport management,• modernization of the ATM sytstem,• regulation of aviation safety, and• restructuring of MCAT.


The number of vehicles on Afghanistan’s roads hasincreased significantly over the past 2 years. According tostatistics provided in a recent International Monetary Fund(IMF) country report on Afghanistan,12 transport of goodsby road increased from 1.9 million tons in 2000 to 3.7 mil-lion tons in 2001 and 5 million tons in 2002. The number oftaxicabs nearly doubled from 17,000 in 2000 to 33,500 in2002. It is estimated that more than 147,000 vehicles wereregistered in Kabul, which can be extrapolated into about304,000 vehicles countrywide (Table 5). Mostvehicles are privately owned and operated.

12 International Monetary Fund, Islamic State of Afghanistan:Rebuilding a Macroeconomic Framework for Reconstruction andGrowth, September 2003.

PresentPresentPresentPresentPresentTravelTimeTravelTimeTravelTimeTravelTimeTravelTime

(hours)(hours)(hours)(hours)(hours)

Travel TimeTravel TimeTravel TimeTravel TimeTravel TimeAfter Improve-After Improve-After Improve-After Improve-After Improve-ments (hours)ments (hours)ments (hours)ments (hours)ments (hours)

Regional CorridorsDushanbe–Kabul–Karachi 2,035 65 29Tashkent–Kabul–Karachi 2,720 72 36Ashgabat–Kabul–Karachi 2,805 72 36Dushanbe–Herat–Bandar Abbas 2,818 73.75 41.25Tashkent–Herat–Bandar Abbas 3,175 57.75 43.75Ashgabat–Herat–Bandar Abbas 2,342 48.75 34

National CorridorsShirkhan Bandar–Pol-e Khomri 138 5.5 2Pol-e Khomri–Kabul 228 9.25 3.25Kabul–Kandahar 510 20.5 7.5Kandahar–Spin Boldak 101 2.5 1.5Hairatan–Naibabad–Pol-e Khomri 221 9 3Andkhuoy–Pol-e Khomri 389 15.5 5.5Andkhuoy–Herat 542 18 7.75Herat–Delaram 348 8.5 5Delaram–Zaranj 213 6.5 3.5Torghundi–Herat 116 3 2

Source: Asian Development Bank staff estimates.

Distance(kilometers)))))Corridor

Table 4. Distances and Travel Time on Selected Road Corridors, 1383/2004

PresentTravel Time

(hours)

Travel TimeAfter Improve-ments (hours)

11

As noted, the MOT-operated fleet has been severelydepleted. According to the Central Statistical Office,13 in2002 the Government owned and operated 22,459 vehiclesconsisting of 10,913 trucks (MOT: 210), 2,741 buses(MOT Millie buses: 230), and 8,162 cars, but nearly allthese vehicles no longer exist. According to the TransportSector Review, the centrally owned bus and lorry companiesand also the trolley bus service have practically collapsed.MOT now has some of the Kamaz freight agencies and theMillie Bus Company. MOT has a trolley busdepartment, but no vehicles, workshops, or power supplynetwork, which have all been destroyed.

The Afghan private sector has historically played adominant role in trucking and it has maintained its pres-ence, including individuals and firms that relocated inPakistan during the war years. As expected, long-distancepublic transport, linking major cities and neighboring coun-tries, has deteriorated due to road and vehicle conditions aswell as suppressed demand for road travel. Securityremains a key concern. Urban transport is available, on alimited scale, in Kabul and provincial capitals.

Urban transport, once dominated by the public sector,is now mostly provided by privately owned buses, taxis, andminivans. Forms of regional transport depend on the stateof the roads and the availability of vehicles. People and goodsmove together, blurring distinctions between passenger andcommercial freight traffic. Private agencies operate pro-vincial and district routes. Some 165 registered long-dis-tance private bus companies are estimated to be operat-ing—101 based in Kabul, 64 in the provinces—with a totalof 14,007 buses, mostly old minibuses and vans.

The taxi system inAfghanistan is wide-spread and well orga-nized. According toMOT, 24 taxi unionsregistered in Kabul and27 in the provinceshave a total of 29,131vehicles. According tothe Transport SectorReview, the real number oftaxis in Kabul is perhaps30,000. Taxis seem tooperate freely, with littleadherence to zonal or anyother rules. In addition,intermediate size vehicles

of all sizes and shapes also transport passengers and goods.

Railways

Currently only a tiny segment of railway14 exists, bring-ing goods from Turkmenistan and Uzbekistan intoAfghanistan. Afghanistan has previously expressed someinterest in developing a railway network: a French com-pany in mid-1970s carried out a feasibility study, but theidea was never very seriously pursued. Interest in the idea ofestablishing a railway network to facilitate movement ofbulk shipments of cotton, coal, cement, and other items isreviving.

Rehabilitation at Workand Accomplishments

Rehabilitation of the transport sector started early in 2002/1381 with international assistance. The principal activities ini-tiated during the period are summarized in Table 6Table 6Table 6Table 6Table 6.....

Roads

In the road sector, ITGA proposed to undertake (i)immediate improvement of selected road segments in 1382/2003, (ii) initiation and partial completion of 2,797 km ofcore primary roads and 143 km of secondary roads in 1382–1383/2003–2004, and (iii) initiation of studies for the me-

Taxi 30,000 20.36 66.67 45,000Bus 1,350 0.92 75.00 1,800Van, Minibus 6,000 4.07 20.00 30,000Truck 38,000 25.79 80.00 47,500Car 72,000 48.86 40.00 180,000Trolley Bus 0 0.00 100.00 0Total 147,350 100.00 304.300

Vehicle Type

Notes: 1 MOT estimate adjusted by working group. 2 Working group estimate.Source: Ministry of Transport.

EstimatedVehicles

in CountryKabul as %of Country2

%Distribution of

Vehiclesby Type

EstimatedVehicles in

Kabul1

Table 5. Estimated Vehicle Fleet, 1382/2003

13 Statistical Yearbook, 2003.

15 9.6 km of 1.524-m gauge from Gushgy (Turkmenistan) to Torghundi; 15km of 1.524-m gauge from Termez (Uzbekistan) to Kheyrabad transship-ment point on south bank of the Amu Darya.



dium-term rehabilitation of 2,479 km of other roads.Against this, ITGA has mobilized substantial assistancefunds to finance rehabilitation of roads. Super Corridorshave received $800 million in financing. The work is invarious stages of planning, survey, detailed engineering, bid-ding, and construction. About 1,000 km of this primarynetwork is already under construction, with scheduledcompletion by the middle to end of 2004. About $126 mil-lion are committed to more than 1,000 km of the NationalHighway network. Some roads are already under construc-tion. Much less has been committed for provincial roads:only about $29 million covering 326 kms. Rural roads re-ceived $42 million. Details of commitments by various aidproviders for the road sector are presented in Appendix 4.....

Repair work on the 175-km Kabul-Doshi road startedin August 2003 under the World Bank-financed EmergencyTransport Rehabilitation Project. The road from Kabulthrough the 2.7-km Salang Pass to Doshi covers a criticalsection of the highway that connects Kabul and the south-ern provinces with eight northern provinces, and connectsAfghanistan to both Uzbekistan via Hairatan port andTajikistan via Shirkhan Bandar port. The road to the northand northeast through Doshi is one of Afghanistan’s six in-ternational links to its neighboring countries. As of De-cember 2003, 85% of the repair work on the Salang tunnelhad been completed with blacktopping.

The work to rehabilitate the 103.5-km Kandahar-SpinBoldak road started in November 2002 under forceaccount. Grading and repairing of damaged pavement wascarried out by MPW and the Kandahar provincial govern-

ment, and 33 km of the most damaged section wasimproved to a well-compacted gravel road. This hasreduced the Kandahar-Spin Boldak travel time from 2.5hours to 1.5 hours (average travel speed of 50 km/hr). Sub-sequently, under a 15-month design-build civil works con-tract that was awarded in late May 2003, the major works tobe carried out are (i) providing base and surface layers ofpavement to turn graveled or cracked carriageway intosmooth riding surface, (ii) providing shoulders for safety,and (iii) rebuilding two washed-out bridges to provide ad-equate drainage for flash floods in the March-April rainyseason. After initial survey and design, work on the road,including 1.5-meter paved shoulders on each side and thetwo bridges at Argistan and Mail, started in October 2003and is expected to be completed by 15 August 2004.

Phase I of the US/Japan-financed 483-km stretch ofthe Kabul-Kandahar road is almost complete, with one layerof blacktopping in place by 31 December 2003. Phase IIwill be completed by September 2004 involving two morelayers of asphalt and a 2-meter paved shoulder on each side.

The road infrastructure component of the EmergencyInfrastructure Reconstruction and Rehabilitation Project,financed by the Asian Development Bank (ADB), com-prises urgently needed repair and rehabilitation to the Pol-e Khomri–Mazar-e-Sharif–Sheberghan section of the ringroad, including international links to Turkmenistan(Sheberghan-Andkhuoy-Aquina road)15 and Uzbekistan

Emergency works (bridges, culverts) on Kabul–Laghman–Kagha Road MPW Department of Construction

Transport Sector Review SIDA

Labor-based public works on tertiary roads UNOPS

Heavy grading 80 km Kabul-Jalalabad road MPW Department of Construction

Heavy grading 45 km Kabul–Kandahar road MPW Department of Construction

Rehabilitation of Kandahar–Spin Boldak road JFPR

Procurement of 274 buses for Millie Bus India (126 more to come)

Procurement of 6 buses for Millie Bus Iran (54 more to come)

Agreement signed for rehabilitation of Kabul airport runway IDA, UAE, Italy, and others and several road segments

Activity

Notes: IDA = International Development Association; JFPR = Japan Fund for Poverty Reduction; MPW = Ministry of PublicWorks; SIDA = Swedish International Development Agency; UNOPS = United Nations Office of Project Services.Source: Ministry of Finance, 1382 Public Investment Program and Transport Program, March 2003.

Table 6. Principal Activities Started in the Transport Sector, 1381/2002

Source of Funds

15 Connected to the Turkmenistan road network through the Atamyrat–Imamnazar road, this corridor is used by the World Food Program (WFP)to bring in food aid for about 6.5 million people in the northern region of

13

(Mazar-e-Sharif/Naibabad-Hairatan road). The total costis estimated at $92 million. Subsequently, Japan has made$20 million available under the Japan Fund for PovertyReduction to finance rehabilitation of the Naibabad-Hairatan (55 km) and Naibabad-Balkh (57 km) sectionsof the northern road. Two consultancy contracts have beenawarded and initial survey and design work has beenongoing since November 2003. Civil works contractorswere to be mobilized by February 2004.

The European Commission has awarded a •26 mil-lion (about $31.5 million) contract to a Chinese engineer-ing company, China Railway Shisiju Group Corporation,for the first reconstruction phase of the vital 222-km Kabul-Jalalabad-Torkham road. The contract covers thereconstruction cost of the 75-kmstretch of the road from Sarobi toJalalabad, and signals the start of a two-stage project costing more than•65 million aimed at rehabilitatingAfghanistan’s vital trade and transportcorridor to its eastern border withPakistan. Major construction workwas expected to begin in mid-Decem-ber 2003. In a parallel project, theGovernment of Pakistan is funding thereconstruction of 70 km of the roadfrom Jalalabad to the border crossingat Torkham. Work on this section ofthe road was expected to begin at theend of 2003.....

Other ITGA accomplishments inthe road sector:• Construction of the Maidan Shahr-

Bamian road began in September2003, with the first phase (road structures and resurfacing)to be completed by summer 2004.

• Work is ongoing on the Herat-Islam Qala road, and

was expected to be completed by the end of 2003.

• A design contract has been signed for the Konduz-

Feyzabad road, and bidding of road works was

expected by December 2003.

• A contract was awarded in October 2003 for the Doshi-

Konduz–Shirkhan Bandar road project under tender-

ing; and

• The Transport Sector Review was completed.

Civil Aviation

In civil aviation, the 1382/2003 budget called for(i) the return of overflight control to Afghan managementwith increased revenues, (ii) the operation of Kabul Inter-national Airport to ICAO standards and the return ofinternational airlines that compete with Ariana, and (iii)the phased rehabilitation of domestic airports for domesticand international operations to ICAO standards of opera-tion. The New Kabul International Airport Terminalproject completed its feasibility stage, with construction tostart at the end of 1383/2004, while the old terminal isrepaired for domestic flights. Currently some equipmentfor the Kabul International Airport has been provided by

Japan, which will also design and finance the constructionof the new terminal, likely to be completed by 1384–1385/2005–2006.

The World Bank is supporting runway design andinstallation of navigation and other equipment, amountingto $19.3 million. Design of rehabilitation works on the run-way has started, and equipment for instrument landings andair traffic control is under procurement. India providedthree Airbus aircraft and will assist with training of person-nel under an ADB-financed technical assistance project.

The total assistance package for the civil aviation sec-tor amounts to $9 million in 1381/2002, $16 million in1382/2003, and $11.5 million in 1383/2004, a total of$37 million. ADB has initiated a study to (i) prepare a civilaviation master plan, (ii) undertake feasibility studies forrehabilitating regional airports, and (iii) prepare a program


PHOTO

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Afghanistan. ADB is planning to finance improvement of theTurkmenistan side of the road through the Atamyrat–Imamnazar RoadRehabilitation Project at an estimated cost of about $21.5 million.


to strengthen MCAT’s implementation capacity. Detailsof commitments by various aid providers for the civil avia-tion sector as per the 1382 development budget are pre-sented in Appendix 5.

Road Transport

In the road transport sector, ITGA is negotiatingdelivery of 111 buses from Japan. Of the 400 buses pledgedby India, 274 have been delivered to date. The balance is

expected in 2004 (Appendix 6). The total assistance pack-age for the transport sector amounts to $36.4 million, equallydivided between India and Japan. MOT has a number ofother proposals, in which no aid provider has yet shown anyinterest. As mentioned, aid provider concern centers aroundthe appropriate role of MOT in the provision of publictransport services.

15

Chapter IV

KEY ISSUES AND CONSTRAINTS

Crosscutting Issues

Security

Security remains a key concern, and the Governmentwill need to provide adequate security for the livesand the belongings of the expatriates and locals who

are working in the sector. Due to security risks, many ofthe leaders in the contracting and consulting industries arenot ready to participate in the development work. This hasalso led to increases in the cost of projects and delays inimplementation.

Capacity

With present capacity, none of the ministries in thetransport sector is in a position to deliver its traditional out-put and services. The construction unit of MPW hasalmost no equipment (Appendix 7); likewise with MCATand MOT. Lack of skilled staff in ministries is severelyaffecting their ability to plan, design, contract, and imple-ment projects. A generation of professional expertise waslost during the conflict, as most of the capable and quali-fied staff left the country. The small cadre of professionalswho stayed in Afghanistan is reaching retirement age. Dueto lack of additional training during the conflict period, alarge gap in capacity needs to be filled by recruiting andtraining a new generation.16 The lack of skilled staff hasalso led to delays in approval of projects and other activi-ties. The salary structure of government employees pro-vides little incentive for staff to put in extra effort and staywith the Government. This is now being addressed throughPRR. Many staff who trained under projects or technicalassistance are leaving these jobs for better remunerationbeing offered by the many consultants and contractors nowin country, thus leading to further scarcity of skilled staff.

Public Ownership

Afghanistan’s transport sector has traditionally beencharacterized by heavy reliance on public ownership, cen-tralization, and archaic organizational arrangements in thepublic sector. Since the transport services themselves areoften in the hands of the public sector, ministries have there-fore not only been engaged in determining policy but also,and more so, in operations and regulation.

Efficiency

The current arrangements do not promote efficiencyand often also make it difficult to effectively address mat-ters of public interest. The evidence may be seen all overthe country: roads are not being maintained, transport ser-vices are of poor quality, the aviation safety system doesnot meet international standards, and road traffic safety ispoor by any standards. This situation is not only a result ofthe past conflicts and lack of funds; it also results frominadequate policies and institutional arrangements. Therequired reforms include restructuring the transport sec-tor, promoting market-based competition, introducingprivatization and commercialization, improving gover-nance, and encouraging beneficiary participation and costrecovery. Some policy and structural reform initiatives areunder way; these need to be closely followed. The Trans-port Sector Review highlighted a number of critical issuesand made recommendations that the Government needsto consider. Accordingly, as part of the Transport SectorReview, a draft transport sector policy statement (Appen-dix 8) was prepared for the Government to consider.Thereview also highlighted the need for restructuring trans-port sector institutions, separating operational and regula-tory functions, establishing transparent procedures for pro-curement and for regulating transport operations, devel-oping road financing arrangements and cost recoverymechanisms in the sector, and promoting private invest-ment in the sector.

16 In these years, some staff members, including skilled operators anddrivers, moved to neighboring countries and elsewhere and acquired skillsbased on mechanized road construction methods.

Key Issues and Constraints


Cross-Border Trade

Cross-border trade is constrained by a huge bureau-cracy, corruption, and lack of trade facilitation services suchas customs warehouse facilities, standardization of bulktransport carriers, and other amenities. The Governmentrecognizes this and is very supportive of measures toimprove trade relations with its neighbors and allow safeand smooth passage of goods from its landlocked territoryto warm-water ports in Iran and Pakistan. ITGA has madeconsiderable headway with policy and institutional reformin the transport sector.

Regulation

The nature of the required regulation varies. Thus, someissues are not simply a concern of the transport sector, butcut across all sectors of the economy: for example, certainaspects of environmental control relate to activities in thetransport sectors as well. And the promotion of competi-tion is a regulatory activity, which applies throughout theeconomy.

Accessibility and Gender

Two other crosscutting issues are accessibility and gen-der. With regard to these, regulation may include standardsetting and enforcement, but the issues at hand mayrequire a more proactive role by the public sector. Accessi-bility refers to the provision of transport and infrastructureservices at affordable prices to certain communities thatwould be inadequately served by a purely market-basedapproach. These communities often tend to be poor and tobe located in very remote areas of the country or in inac-cessible parts of urban areas.

Gender issues in Afghanistan are complex and deeplyrooted in culture and recent experience. The Bonn Agree-ment requires that the Government ensure the participa-tion of women and the equitable representation of all eth-nic and religious communities public life.

Transport can make a big difference in increasingwomen’s productivity and promoting gender equality. Inaddition to its major contribution to economic growth,transport plays a crucial role in socially sustainable devel-opment by broadening access to health care and educationservices, employment, and information, and promotingsocial cohesion.

The transport sector dimension of gender includes(i) enforcement issues with regard to the use by women of

taxis, buses, and other means of transport, to ensure an equaltreatment of both sexes; and (ii) identification and devel-opment of transport solutions that are responsive to theneeds of women.

Making transport policy more responsive to the needsof women requires developing a structured approach tounderstanding their needs, identifying instruments toaddress those needs, analyzing the costs and benefits of thoseinstruments, and establishing an appropriate policy frame-work. It also requires that women be represented at eachstep of the planning and design process of transportinvestments, including their presence on user panels. Gov-ernment agencies, nongovernment and community-basedorganizations, and women’s groups that can be mobilizedin planning and implementation should be identified andconsulted. Gender findings should be included in projectdesign.

The civil aviation sector could be a leader in providingequal opportunities, accessibility, and security for women,as both employees and customers, most particularly womenair travelers. Creating an environment where women cantravel freely and safely by themselves, without a close malerelative escort, is an essential requirement of Afghanistan’smodern transportation system, in which air travel plays amajor part. The groups most in need of this include busi-nesswomen and widows (estimated at 700,000).

A large number of new employment opportunities willbe created in the aviation industry in the next 10 years ascapacity building proceeds. The great majority of positionsand tasks can be done just as well by women as by men.Therefore, many opportunities will arise to recruit and trainwomen in all facets of administration and operation. Air-lines are also employers of many women, in all kinds ofpositions, from booking clerks, check-in (and other cus-tomer service) to managers and pilots.

Environmental Issues

Environmental issues have not previously been of criti-cal concern to Afghanistan’s leaders or industries. Suchissues can no longer be ignored in the modern globalizedworld. All infrastructure-related ministries must issue anenvironmental policy and conduct their business in aware-ness of that policy, and of national environmental law, whenthat is implemented. Environmental aspects and implica-tions should be considered in all administrative, operational,planning, and construction activities. In particular, envi-ronmental features of vehicles and aircraft need to be highpriority.

17

Regulating Safety, Security, andEnvironmental Protection

A new agency for the regulation of safety, security, andenvironmental protection in civil aviation will have to beestablished. Similarly, the regulation of road traffic withregard to safety and environmental aspects specific to theroad sector will have to be entrusted to another agency, alsoexpected to handle registration of licences and vehicles. Asconcerns aviation and road traffic, Afghanistan will meetinternationally accepted standards in regulating safety andsecurity adequately.

The Handicapped

Afghanistan has, unfortunately, one of the highest pro-portions of handicapped and disabled citizens in the world.Most of these people are men who need employment andresponsible positions to help regain respect and self-esteem.Due to the critical shortage of staffing in the infrastructuresector, and the need to recruit and train a large number ofcompetent people within a relatively short time, this re-source will not be ignored.

Roads andHighways

The Private Sector

MPW must draw on in-ternational experience inengaging the private sector inroad construction, mainte-nance, and management. Animportant opportunity existsfor reviving, developing, andupscaling the domestic roadconstruction industry. It mayalso be possible to commer-cialize the road department. Anumber of Afghan road con-tractors, transporters, and

equipment suppliers relocated to neighboring Pakistanand Iran during the past decade as a consequence ofthe prolonged state of conflict, where they continue topursue their respective business activities. Some24 small Afghan road construction contractors17

operate in these two countries and are now eager to returnto Afghanistan in view of the potential for major develop-ment activities. However, their equipment capabilities arelimited, and they will need access to financing and capacitybuilding in contract management before they can gradu-ally take up major road construction contracts. Since thebeginning of 2002, several of these contractors havereturned and established offices in Afghanistan in antici-pation of the upcoming development activities. Under thepresent circumstances, while construction works and largemaintenance contracts are being handled by internationalcontractors, local contractors can for some time onlyexpect to handle part of the maintenance works. For thetime being, therefore, MPW will need to maintain limitedforce account capacity, to perform (routine) road mainte-nance and also to undertake emergency repairs to supple-ment the capacity of the private sector.

Toll Collection

As with other taxes and levies, toll collection onnational and provincial highways is irregular, unsupervised,and unaudited. Further, much of the revenue collected fromtolls never reaches the central Government. Such revenues

17 With an average annual turnover of about $1 million each, thesecontractors are mostly working as subcontractors for civil work activitiesrelated to earthworks, aggregate and equipment supply, and some basecourse and subbase course works.

Key Issues and Constraints

Progressishappening:asteamrolleratworkonasectionoftheSuperCorridorinKandaharprovince�


should be an important source of funds for road mainte-nance, which has been very substandard. The Ministry ofFinance proposes to take over toll collection as a centralrevenue item. A modern road asset management system isneeded. The Transport Sector Review made certain rec-ommendations regarding road sector financing, which areworth considering (Appendix 9).

Implementation Constraints

The road sector suffers from the following implemen-tation constraints:• inadequate capacity within MPW to coordinate and

manage implementation executed by developmentpartners;

• difficulty in retaining trained staff at current civil ser-vice salaries because of expanding private sector con-tract job opportunities;

• security concerns at road building sites;

• failure to build in mine survey and clearance in

roadcontracts and thus insufficient demining capabili-

ties; and• aid providers’ own implementation procedures,

including differing, complex, and slow procurementand budget approval procedures.

Civil Aviation and TourismThe Government has decided to restructure the board

of Ariana Airlines and place it directly under the Ministryof Finance. It will soon reconstitute the board and worktoward privatization.

Ariana may need to be offered protection from com-petition for a period of time, for two reasons: (1) the needto ensure international connectivity, given that the aviationsafety and security system in Afghanistan has not beenICAO-certified; and (2) the potential competition forAfghan routes with other regional airlines. Ariana is, how-ever, eventually expected to be profitable and to serve onlyroutes not expected to incur losses in the medium term.Likewise, the small domestic market does not lend itself toopen competition for the time being, in part on account ofthe inadequate facilities at present, but may provide scopefor a regulated system designed to encourage the partici-pation of the private sector. However, air cargo may be lib-eralized. In any case, all such issues need to be carefullyassessed before concrete policy actions are initiated. As with

all sectors in Afghanistan, the central issue is the role of thepublic sector in the provision of services and in operations.

Road Transport and TrafficThe current state of road transport and traffic high-

lights the need for early resolution of key issues such as therole of the Government in the provision of transport ser-vices, regulating private users, and achieving socioeconomicobjectives of accessibility; and the structure of governmentinstitutions dealing with the sector. More specifically,institutional reorganization must look into the questions ofcorporatization of MOT truck and bus operations, eco-nomic deregulation of road transport services and interna-tional transport and transit, regulation of safety and othermatters of public interest in road traffic, mandatory third-party liability insurance, accessibility in urban and ruralareas, and the aforementioned MOT restructuring. Roaduser and vehicle regulations must be upgraded to improveroad safety and protect the environment and road infra-structure. With regard to road user regulation, improve-ment of training, testing, and licensing is in order. In thematter of vehicle regulation, the focus has to be on designand construction standards, vehicle weight, roadworthiness,vehicle pollution, and vehicle registration.

The current state of urban transport is complete chaos.It is constrained by lack of transport capacity, congestion,pollution, lack of accessibility, inadequate route coverage,poor road condition, and lack of depots, stops and termi-nals as well as designated road space. Kabul is particularlyhard hit; at present, it has no buses or trolley ways. Shouldthese be introduced? The urban transport system needsintegrated planning. Vehicle fleet support services aremostly privately provided, with government workshopsoperating poorly, including those at border points.

RailwaysIn the railway sector, the main issue is whether the

country should invest in a wide network of railway com-munication, following the recommendations of a 1975 studyby French contractors, or hold it for further review. Mean-while, it has been decided to establish receiving and dispatch-ing stations at selected border points with neighboring coun-tries to handle bulk shipments. The other issue is how to getthe private sector interested in investing in railways.

19

Strategic Vision andObjective

The vision of the Government is “to restore andcreate the basic transport infrastructure facilities,including roads and airports, to allow better

operation of necessary public and private transport servicesin all areas of the country, and international linkages,thereby facilitating economic development throughimproving access to markets and reducing poverty. Theprogramme focuses on specific interventions in theprimary and secondary road network, civil aviationinfrastructure, and essential public transport.”18

The objective of this program is to promote nationaland regional/subregional integration, development, andsecurity by restoring, expanding, and improving roads andhighways, civil aviation, and transport services to allowefficient public and private sector operations in respectiveareas of competence, strengthen market and internationallinkages, and create opportunities for the poor to share in thebenefits of growth and prosperity, thereby eliminatingpoverty in the foreseeable future (Appendix 10).

GoalsThe goal of the roads and highwaysroads and highwaysroads and highwaysroads and highwaysroads and highways subprogram is to

rehabilitate and improve the network of roads and high-ways; strengthen domestic linkages between the capital,all major cities, major commercial, industrial productionand mining centers, and provincial and district headquar-ters. Such linkages will achieve total connectivity of theroad network, enhance national integration, and strengthen

international linkages with neighboring countries, therebyfacilitating economic development and reducing povertythrough improving access to markets.

In the civil aviation and tourismcivil aviation and tourismcivil aviation and tourismcivil aviation and tourismcivil aviation and tourism subprogram, the goalis to rehabilitate and improve airports and air transport,together with tourism services. Such improvements willallow faster travel and improved linkages with the rest ofthe world and within the country between major cities andtowns, thereby facilitating movement of people—includ-ing tourists, for whom the natural and historical sites ofAfghanistan should become an increasingly attractive des-tination—and increasing trade in low-volume, high-valuegoods.

The goal of the road transport and trafficroad transport and trafficroad transport and trafficroad transport and trafficroad transport and traffic subprogram,where the Government’s role is admittedly more regula-tory, is to increase, improve, and maintain the vehicle fleetand facilitate better operation of necessary public and pri-vate transport services in all areas of the country.

At this stage, the railwayrailwayrailwayrailwayrailway subprogram has the limitedgoal of taking advantage of the existing railway networksin neighboring countries that extend to the Afghan borderto create facilities for receiving and dispatching bulk ship-ments in and out of the country, thereby substantiallyreducing transport costs and increasing cross-border trade.

Key PrioritiesIn the CNA for transport infrastructure, the

following were deemed to be priorities:• investment in the national highway network to facili-

tate trade and movement of goods and people;• creation of a road and transport network to integrate

the country and provide connectivity among thecountry’s 32 provinces, with district headquarters ineach province connected to the main national highway

Chapter V

STRATEGIC VISION, GOALS,AND KEY PRIORITIES

Strategic Vision, Goals, and Key Priorities

18 Islamic Transitional Government of Afghanistan, Transport Programmeof the Public Investment Programme, March 2003.


to ensure access to Kabul and other major regionalcities and market centers;

• investment in road infrastructure to provide access topotential centers of economic activities, e.g., areas po-tentially rich in mineral resources;

• investment in the provincial road network providingcommunication between provincial towns and districtheadquarters;

• investment in the rural road network to provide accessto markets for agricultural products;

• investment in roads for security and strategic reasons;• investment in regional and domestic airports to speed

the movement of people and low-volume, high-valuegoods within and in and out of the country, andimproved links with important centers that are diffi-cult to access because of terrain and geography; and

• investment in rail dispatching and receiving stationsat border points to facilitate bulk shipments fromneighboring countries.

Roads and Highways

Key priorities in the roads and highways subprograminclude the following public investments (Appendix 11):1. Super Corridor/Regional Highway Super Corridor/Regional Highway Super Corridor/Regional Highway Super Corridor/Regional Highway Super Corridor/Regional Highway (two-lane expan-

sion to make four lanes) (2,323 km) fostering regionaltrade and economic linkages between Afghanistan andneighboring countries—Iran, Pakistan, Tajikistan,Turkmenistan and Uzbekistan:

• Shirkhan Bandar–Pol-e Khomri–Kabul-Kandahar–Spin Boldak Super Corridor (1,162km) that connects Tajikistan through Afghanistanto Pakistan.

• Naibabad–Mazar-e-Sharif–Andkhuoy–Herat–Delaram–Zaranj Super Corridor (1,344 km) thatconnects Tajikistan and Uzbekistan to Iranthrough Afghanistan.

• Herat-Islam Qala Super Corridor (124 km) open-ing the gateway to Iran.

• Delaram-Kandahar Super Corridor (216 km),representing an important segment of the famousring road connecting Tajikistan, Turkmenistan,and Uzbekistan through Herat to Kandahar andon to Pakistan.

2.2.2.2.2. National HighwaysNational HighwaysNational HighwaysNational HighwaysNational Highways (2,175 km) promoting trade andeconomic linkages and extending Super Corridors toprovincial capitals and contributing to peace, security,stability, economic growth, and national integration.• Farah–Delaram Highway (253 km) connecting

Farah to the ring road, facilitating trade and com-merce and allowing smooth passage over theFarah–Delaram–Kandahar and Lashkar Gah-Gereshk segment.

• East-West Highway (1,267 km) providing fordirect east-west movement of people and goods,avoiding the roundabout sections of the old ringroad and allowing smooth passage over the Herat–Chaghcharan–Bamian–Charikar + to Doshi +to Maidan Shahr + to Basud via Panjab segment.

• North-South Highway 1 (775km) providing for direct north-south movement of people andgoods from Kandahar to Mazar-e-Sharif, avoiding the very long round-about sections of the old ring road,also connecting the formerly inacces-sible central parts of the country withthe ring road and allowing smoothpassage over the stretch Kandahar–Tarin Kowt–Yakawalang–Dara-i-Suf–Mazar-e-Sharif.• North-South Highway 2 (776km) providing for direct north-south movement of people andgoods from Sheberghan toDelaram avoiding the very longroundabout sections of the old ringroad, also connecting the formerlyinaccessible central parts of the

PHOTO OFSABZAK PASSTO GO HERE

Afghanistan�sremotenessandmountainousterrainofferlargechallengestoroadbuilders�suchasSabzakPassontheborderofwesternHeratandBadghisprovinces�

21

country with the ring road and allowing smoothpassage over the stretch Delaram–Chaghcharan–Sar-e Pol–Sheberghan.

• Khulm–Eshkashem Highway (478 km) improv-ing links to the People’s Republic of China allow-ing smooth passage over the Khulm-Konduz-Taloqan-Feyzabad-Eshkashem segment.

• Asadabad-Ghazni Network Highway (817 km)contributing to peace, security, and developmentof a troubled region allowing smooth passage overthe network Asadabad-Jalalabad-Sarobi-Bagrami-Kabul-Pol-e Alam-Gardeyz-Khowst-GulamKhan + Gardeyz-Sharan-Ghazni + Pol-e Alam-Shikabad + Zurmat-Sharan.

• Jabal Saraj-Nurestan Network Highway (172km) improving communication in easternAfghanistan allowing smooth passage over theAbalssaraj-Kohistan-Mahmud Raqi-Sarobi +Mihtralam-Nurestan segment.

• Unspecified additional roads (375 km) mostlydesigned to improve peace and security and ex-tend central control over the region.

3. Provincial Roads (4,484 km) improving the adminis-trative, trade and economic contacts between districtheadquarters and respective provincial capitals andbetween important district headquarters:• provinces that have type 1 and type 2 roads:

Badakshan, Baghlan, Konar, Lowgar, Herat,Paktika, Nimruz, Kandahar, and Badghis; and

• other provincial roads (all type 2).

4. Rural Roads (1,500km) bringing the hinterlandinto commercial contact withmarkets and seats of power.5. Capacity building,which includes planning, skilldevelopment, developmentand implementation of policyand regulatory frameworks,and administration.

Civil Aviation andTourism

Key priorities in the civilaviation and tourism subpro-gram include the followingpublic investments (Appendix12):

• Upgrading of Kabul International Airport to a full-fledged international airport meeting ICAO standards;

• Upgrading Herat, Mazar-e-Sharif, and Jalalabad air-ports to international standards;

• Upgrading 15 major domestic airports at Konduz,Feyzabad, Bamian, Chaghcharan, Yakawlang,Sheberghan, Meymaneh, Taloqan, Gardeyz, Khowst,Zaranj, Bost, Badakshan, Qal’eh-ye Now, andKhawahan;

• Establishment of an appropriate ATM system thatmeets international standards;

• Construction of hangars and parking bays;• Construction of training and other related facilities;• Development of priority national tourist sites;• Improvement of transport and communication with

tourist centers; and• Promotion of tourism and training.


Key priorities in the road transport and traffic subpro-gram include the following public investments (Appendix13):• Support Afghan International Transport, managing a

75-truck fleet facilitating movement of strategic ma-terials to remote areas;

• Support Millie Bus Company managing a fleet of 963buses, mostly in Kabul and other major urban centers,easing pressure on mass transit;

• Revive the trolley bus system in Kabul;

Strategic Vision, Goals, and Key Priorities

RefuelingonthedilapidatedtarmacatHerat�oneofthefourairportstobeupgradedtointernationalstandards�


• Establish/rehabilitate six technical and maintenanceworkshops, two at Kabul and one each at Kandahar,Herat, Mazar-e-Sharif, and Jalalabad;

• Construct four transport terminals in Kabul,reducing pollution and congestion and improving pas-senger comfort; and

• Construct/rehabilitate 22 administrative buildings fortransport management. These buildings house trans-port companies and also representatives of MOT pro-viding direct public/private interface, therebyfacilitating service and regulation of the transportindustry.

• Regulate the vehicle fleet, including registration, driv-ers’ licensing, inspection, weighing stations, and trans-port management.

• Build capacity, which includes planning, skilldevelopment, development and implementation ofpolicy and regulatory frameworks, and administration.

Railways

The key priority in the railways subprogram is publicinvestment in the construction of Railway Dispatch andReceiving Stations (DRS) at Islam Qala, Torghundi,Hairatan, Spin Boldak, and Torkham to handle bulkshipments from and through neighboring countries(Appendix 14).

23

Roads and Highways

The key outcome/service delivery indicator inroads and highways is to increase the availabil-ity and improvement of paved roads as measured

by kilometers of paved roads per 1,000 people (Appen-dix 15).

Expected results in the road subprogram during thefirst 3 years (2002–2004/1381–1383) include• improvements of selected road segments, using MPW,

provincial, and local contractor resources;• rehabilitation by 2005/1384 of major segments of the

Super Corridors, such as Shirkhan Bandar–Pol-eKhomri, Doshi–Salang–Kabul, Kabul–Kandahar,Kandahar–Spin Boldak, Hairatan–Naibabad, andNaibabad-Pol-e Khomri; and

• initiation and partial completion of 1,333 km of Na-tional Highway, 2,973 km of provincial roads, and 900km of rural roads.The 4 years 2007–2010/1386–1389 are expected to

result in initiation and partial completion of 2,323 km of SuperCorridor, 842 km of National Highway, 1,982 km of provin-cial roads and 600 kilometers of rural roads. Further studieswill be completed for additional road segments to be rehabili-tated/improved in the years 1386–1389.

In 2003/1382, Afghanistan had 0.15 kms of pavedroads per 1,000 people. The target is to raise this to 0.23km per 1,000 people in 2010/1389 and 0.46 km per 1,000people in 2015/1394, both well within the present rangefor comparable developing countries (also Appendix 11).

Civil Aviation and TourismThe key outcome/service delivery indicator in civil

aviation is improvement in air transport as measured by

the number of domestic and international airports func-tioning as per ICAO standard (Appendix 15).

Expected results in the civil aviation subprogram dur-ing the first 3 years include• upgrading of Kabul International Airport;• raising of three airports at Herat, Jalalabad and Mazar-

e-Sharif to appropriate ICAO international standards,all capable of handling increasing numbers of land-ings by foreign carriers; and

• completion of upgrade on some of the 15 domestic/regional airports, operating according to ICAO-ap-proved standards for domestic airports.During the following 4 years, expected results include

further upgrading of four international airports at Herat,Kabul, Jalalabad, and Mazar-e-Sharif and of 15 domestic/regional airports, all domestic and international airportsoperating to international standards (ICAO), able to handlean increasing number of landings by foreign and domesticcarriers.

The target in the civil aviation sector is to completethe upgrading of four international airports at Kabul,Herat, Jalalabad, and Mazar-e-Sharif and 15 majordomestic airports. The upgrading work will continuethrough 2015 while construction will commence on onenew international airport at Lowgar near Kabul.

The key outcome/service delivery indicator for tourismis the number of sites developed. The effort is directed towardreviving the moribund sector and bringing back the touristswho are staying away from Afghanistan for various reasons,primarily security and amenities. The target is to develop20 tourist sites by 2010/1389 and another 10 by 2015/1394.

Road Transport and TrafficThe key outcomes/service delivery indicators in road

transport and traffic are the number of vehicles per 1,000

Chapter VI

OUTCOME/SERVICE DELIVERYINDICATORS AND TARGETS

Outcome/Service Delivery Indicators and Targets


people, and the number of minibuses per 1,000 urban popu-lation (Appendix 15)

In road transport and traffic sector, the immediateresults in the next 3 years (2002-2004/1381–1383) are• beginning the restoration of mass public transporta-

tion in Kabul and other major cities;• strengthening intercity and interregional public trans-

port and goods movement;• providing support facilities for the road transport sec-

tor; and• developing and implementing policy and regulations

to regulate road traffic, improve road safety, andreduce environmental pollution.

Over the following 4 years, these programs are to be contin-ued for further improvement of road transport and traffic.

In 2003/1382, Afghanistan had 13.71 vehicles per1,000 people. The target is to raise this number to 26.71 by2010/1389 and to 40 by 2015/1394, levels achieved by othercomparable developing countries (also Appendix 13). Thesecond target is to raise the number of minibuses from thecurrent 0.059 per 1,000 people to 0.151 by 2010 and to 0.3by 2015.

RailwaysThe key outcomes/service delivery indicator in rail-

ways is construction of Dispatch and Receiving Stations,of which none now exist.

In the railway subprogram, results in the first 3 yearswill focus exclusively on the establishment of five Dispatchand Receiving Stations at Islam Qala, Torghundi, Hairatan,Spin Boldak, and Torkham together with other facilities,such as customs complexes, truck parking, and dedicatedwarehouses. During this period, capacity building foroperation and maintenance will be undertaken. Further-more, an in-depth review of the 1975 study containing theproposal for a national railroad system will be completed.Over the next 4 years, operation, maintenance, andimprovement of five Dispatch and Receiving Stations atIslam Qala, Torghundi, Hairatan, Spin Boldak, andTorkham, together with other facilities such as customscomplexes, truck parking and dedicated warehouses, willcontinue, together with capacity building. A new feasibil-ity study for a national railroad network will be undertaken.

The railway sector target is to construct five such dis-patching and receiving stations by the end of 2010/1389.

25

Roads and HighwaysThe development program for the roads and high-

ways subsector has been conceptualized around integra-tion, development, and security. Integration has been con-ceived in terms of strengthening regional, national, pro-vincial, and rural-rural and rural-urban linkages. It isassumed population will grow at an annual rate of 1.92%,rural 1.4% and urban 3.3%. Alternative scenarios are pos-sible for growth in gross domestic product (GDP). Anoptimistic scenario assuming improved security is consid-ered here, implying annual GDP growth rates of 15% upto 2007/1386 and 10% thereafter. This is the backdrop ofimpressive performance in 2003/1382 of nearly 30%, drivenby agriculture, construction, and other aid-supportedinvestments, and a projected 20% in 2004/1383. Popula-tion and GDP growth, combined with improved security,mobility and access; return of the refugees and IDPs;rural-urban migration; domestic business, social and lei-sure travel; and the rise of market, commercial, urban, andmineral production centers, as well as deepened economic,political, and trade and commerce relationships with neigh-boring countries, will place heavy demands on road capac-ity, in terms of both quantity and quality for movement ofpeople and goods.

The considerations cited above have played animportant role in the design of the proposed road network,specification of different types of roads, and consequentlyunit costs of road construction and maintenance (Appen-dix 11). The program reflects the priorities set by MPW.The four-lane Super Corridors, which will carry the loadof domestic and regional traffic, are projected to cost $0.75million per km. With increased competitive bidding froma wider range of domestic and international contractors,improved security, and increased availability of construc-tion materials within the country, the unit cost will go down.

In this recosting exercise, all unit costs based on cur-rent experiences have been kept unchanged to absorb priceand physical escalation, if any. Corresponding projected unitcosts are $0.5 million for National Highways, $0.3 millionfor provincial roads type 1, and $0.5 million for provincialroads type 2, and $0.05 million for rural roads. These unitcosts have been derived using information from WorldBank/United States Agency for International Develop-ment/ADB/MRRD-financed projects under implemen-tation, duly accounting for specification and other differ-ences. Using data provided in the Transport SectorReview, O&M costs are placed at 0.9% for the Super Cor-ridors, 1.4% for National Highways, 3.4% for provincialroads, and 1.9% for rural roads. Technical assistance hasbeen estimated at 1% of total cost. Capacity building costsrelate to strategies, planning, studies, maintenance, devel-opment, implementation of policy and regulatory frame-works, and administration.

All costs are attributable to the public sector, except asmall amount that is communities’ share of rural road main-tenance costs. Investment phasing has taken into accountwork under way and the gestation period, starting roadconstruction, and the likely pace of progress under theexisting Afghan situation.

Civil Aviation and TourismCivil aviation costing is based on airport rehabilita-

tion and development, acquisition of air transport equip-ment and training, and development of required skills. Theairport development plan reflects the priorities and strat-egy of MCAT. The basic idea is to bring Kabul Interna-tional Airport to truly international level in terms of tech-nical standards, facilities, and amenities. The cost of thisexpansion and upgrading has been estimated at $100 mil-lion over the 7-year planning period. Investment phasing

Chapter VII

COSTING OF OUTCOME/SERVICE DELIVERY TARGETS

Costing of Outcome/Service Delivery Targets


is assumed to be 5% in the first year, 10% in the secondyear, and 30% in the third year, with the remaining 55%coming in over the last 4 years. Three other airports atHerat, Jalalabad, and Mazar-e-Sharif, costing $50 millioneach over a 7-year period, will be raised tointernational level. Annual phasing will be the same as thatfor Kabul. The cost of rehabilitation and improvement oftwo major domestic airports at Konduz and Feyzabad isestimated at $10 million each over 7 years; rehabilitationof the remaining 13 domestic airports is assumed to cost$5 million each.

The total cost of airport rehabilitation and develop-ment is thus estimated at $375 million. It is divided as run-way (30%), terminal and re-quired facilities (20%), ap-proach roads and parking(10%), air traffic control(15%), aviation safety (5%),and vehicles and equipment(20%). To this, an amount of$20 million is added for acountrywide ATM system.O&M is taken to be 15%.

For air transport, it is as-sumed that 10 wide-bodiedand 30 smaller aircraft willbe acquired over the 7-yearplanning period. The totalcost is estimated at $350 mil-lion, assuming an averageprice of $20 million each forwide-bodied aircraft and $5million for smaller planes.The cost of hangars andparking bays is placed at20% of aircraft cost. O&M is taken to be 15%. Annualphasing is determined on the basis of assumed growth ofair traffic, both passenger and cargo. Given the importanceof civil aviation for a landlocked and mountainous country,present estimates could very well be on the conservativeside.

On the manpower side, the situation is desperate. Itwill be necessary to build virtually everything from scratch.Particular attention has to be paid to this aspect of plan-ning, costing, and financing; otherwise, development of civilaviation in Afghanistan will be seriously constrained. Harddata are not available on skills required and costs of train-ing, or the construction and operation of complex traininginstitutions in Afghanistan. An amount of $100 million hasbeen tentatively allocated to civil aviation manpower de-

velopment (air traffic controllers, pilots, other flight per-sonnel, maintenance crews, and so many others). O&M istaken to be 15%.

As for the development of tourism, a more modestapproach has been adopted in light of the current politicaland security situation (Annex 12). The pace of growth ofthe tourist industry will be very slow at the outset, but willaccelerate in later years. The initial focus has to be on his-torical sites and national parks. It is anticipated that, overthe planning period, a total of 20 sites (existing and new)will be developed/restored at an average cost of $3.5 mil-lion per site. In addition, it is assumed that 50 hotels/motels/guesthouses will be developed in Kabul and other

tourist sites at an average cost of $0.8 million apiece. Cor-respondingly, 25 restaurants will be developed at an aver-age cost of $0.2 million. Other costs will include transportand communications, promotion, and training, all of whichare critical for a thriving tourist industry. O&M is takento be 15%. The cost of planning, capacity building, devel-opment, and implementation of policy and regulatoryframeworks and administration is estimated to be $28 mil-lion for 7 years, $4 million a year. Technical assistance hasbeen estimated at 1% of total cost. The public sector shareof the proposed investments is placed at 100% for airportsdevelopment, 30% for air transport, 60% for skill devel-opment and creation of training facilities, 40% for tour-ism, and 100% for planning. The average share of the pub-lic sector in total investment works out to be about 62%.

Thisrebuildingproj ect�betweenHeratandI slamQ alaneartheI ranianborder�isbeingfinancedbytheI ranianGovernment�

27

Road Transport and TrafficMuch of the road transport cost will be incurred by

the private sector, whether it is for vehicle fleet acquisitionor vehicle support services (Appendix 13). Based prima-rily on current Kabul prices, average vehicle cost is assumedto be $7,000 for taxis (old and new), $50,000 for buses(new), $10,000 for vans/minibuses (old and new), $30,000for trucks (new), and $10,000 for cars (old and new). O&Mis taken to be 15%. Annual investment phasing is assumedto be 10% in the first year, 15% in the second year, and20% in the third year, with the remaining 55% coming inthe last 4 years.

Vehicle support services include• 4 large depots/terminals in Kabul at $10 million each;• 8 depots/terminals in 4 major cities, 2 each at unit cost

of $0.5 million;• 32 interprovince bus terminals, one in each provincial

capital, at $0.2 million each;• 35 parking facilities in all major cities at $0.2 million

each;• 100 bus/taxi stands/stops in Kabul at $10,000 each;• 80 bus/taxi stands/stops, 20 each in 4 major cities at

$5,000 each;• service workshops at 4% of incremental capital invest-

ments in vehicles;• 30 highway transporters’ facilities (rest and service

facilities) at 100-km intervals along the super corri-dors, at a unit cost of $1 million each;

• road traffic management system (electronic traffic sig-nals and related infrastructure), 40 in Kabul and 80 in4 major cities at $50,000 each; and

• vehicle support service at 8 border crossings at a unitcost of $20 million each.

O&M is taken to be 15% (Appendiex 13).Costs associated with vehicle fleet regulation are those

for registration facilities, drivers’ licensing facilities, vehicleinspection facilities, weighing stations, and transport man-agement facilities. It is planned to establish• 32 registration facilities, one in each province, at an

average unit cost of $0.5 million;

• 32 drivers’ licensing facilities, one in each province, atan average unit cost of $50,000;

• 320 vehicle inspection facilities, 10 in each province,at an average unit cost of $5,000;

• 30 weighing stations at critical stops along highways.at an average unit cost of $20,000; and

• $45 million lump sum for transport management fa-cilities.

O&M is taken to be 15%.Strategies, planning, studies, capacity building, devel-

opment and implementation of a policy and regulatoryframework, and administration are assumed to cost about$67 million over 7 years. Technical assistance has beenestimated at 1% of total cost. Public sector investments con-sist of planned MOT investments of about $278.8 millionfor a truck fleet, Millie (mini) buses, workshops, a trolleybus system, transport terminals and administrative build-ings, and costs of vehicle fleet regulation, to the tune ofabout $29 million. Total public sector investments in roadtransport and traffic for the period are estimated at $353.4million, or just 5% of the total.

However, planned investments by MOT have beenincluded here without prejudice to any final governmentdecision regarding MOT’s continued involvement in any-thing other than regulation. The Transport Sector Reviewrecommended corporatization/privatization for most of theitems included; retention of some of them in the publicsector can be justified on grounds of serving inaccessibleareas or serving high-security public interest, or only as aninterim arrangement prior to alternative arrangements.

RailwaysRailways dispatch and receiving stations are planned

at five border points, at a unit cost of $20 million (Appen-dix 14). This cost will be incurred over the first three years.Total cost of capacity building is placed at $15 million. Tech-nical assistance has been estimated at 1% of total cost.O&M is taken to be 15%.

Costing of Outcome/Service Delivery Targets

29

Infrastructure investments need to be underpinned bya strong institutional and regulatory framework. It willtherefore be essential to restructure the transport sec-

tor institutions to create an efficient transport sector. Fur-ther, a strong regulatory framework needs to be put in placeto provide efficient services to the public, irrespective ofwhether these are provided by the private sector or the pub-lic sector. Attention has to be paid to financing arrange-ments and cost recovery. Besides, with overall planning,strategy articulation, project design, and implementationcapacity so weak, an exceptional effort would have to bemade to buy/borrow this capacity from abroad during aninterim period, while a serious program for Afghanizationof Afghan development and administration is put in placefor substantial takeover within the planning period.

Roads and Highways

Institutional Structure toImplement the Road Network

MPW will be reformed to be a lean and thin organi-zation, whose primary task is countrywide planning ofpolicy and of the countrywide road network, setting of stan-dards (including technical, safety, social, and environmen-tal safeguards), regulation and enforcement functions, andmanagement and contract management of the Super Cor-ridor and National Highways.

MPW will be responsible for the contracting out ofworks related to the Super Corridors and National High-ways. The construction/rehabilitation of the Super Corri-dors and National Highways will be implemented throughinternational consultants and contractors, using design/build contracts. MPW will contract out the works such asfeasibility and detailed design studies, supervision of con-

struction, and maintenance. It will undertake preparationof bid documents, evaluate bids, and award contracts. Theconsultants will act as the engineer under the contract,review and approve the design prepared by the contractoron behalf of MPW, and supervise the construction. Theconsultants will perform quantity and quality assurance.The contractors will actually implement large projects. Theroads will be packaged to be attractive to international bid-ders under the international competitive bidding proce-dures, and it will be easy for MPW to supervise the con-tracts using consultants.

The provincial highways will be the responsibility ofthe provincial governments. Since many of the provincialgovernments need to upscale their capacity to be able toimplement projects of such a large nature, MPW willassist them in undertaking the construction activities,using a model similar to that for the Super Corridor andNational Highways. The contract packages will be of asize to be attractive to international contractors.

Rural roads will continue to be the responsibility ofMRRD. These will be smaller road packages and will beconstructed using local competitive bidding procedures,with the assistance of the local government and the com-munity. This will help in building local capacity in roadconstruction.

Operation and MaintenanceArrangements and Financing

To maintain the entire road network will requireapproximately $80 million annually. Unless such funds areavailable, the assets built up in the rehabilitation and con-struction will be lost to neglect in 5 to 10 years. Therefore,the Government must provide these funds for road main-tenance.

Chapter VIII

IMPLEMENTATION STRATEGY,INSTITUTIONAL AND FINANCIALARRANGEMENTS, AND CAPACITY

Implementation Strategy


As assets manager of the Super Corridor and NationalHighways, MPW will have only a couple of maintenanceoptions: (i) it can contract out large corridors to contrac-tors on an annual or multiyear specification-based mainte-nance contract; (ii) or for some strategic locations and totake care of emergency situations, it can use its own fleet ofmaintenance equipment and personnel to be able to movequickly, to take care of snow in cases such as that of theSalang tunnel, or of sand dunes, in the case of the Hairatan-Naibabad road.

Under the ongoing civil servicesreform agenda, MPW has taken aproactive role in undertaking prior-ity reforms and reconstruction, start-ing with the operation and mainte-nance department in Kabul: it hasdrafted a clear mandate and terms ofreference for the department,deployed staff and machinery, andconstructed facilities for workshopsand maintenance of road machinery.MPW will apply the experiencegained in Kabul to reforming theoperation and maintenance depart-ments in its eight provincial depart-ments.

O&M will have to be financedfrom funds generated by the Gov-ernment from its own resources. Ini-tially, until the Government is ableto raise some dedicated source of revenue, the funds willhave to come from the national budget. As reforms progressand capacity increases, as fuel distribution around the coun-try is streamlined, and as banking and accounting systemsbecome more efficient, revenue for both capital and main-tenance road works could be raised by collecting a cess/surcharge on fuel. The Government will need to instituteroad tolls, to start with on roads that have been upgraded;as it is enthusiastic about self-financing road maintenance,it is already considering imposing tolls soon, and MPWhas submitted a paper for consideration of the Cabinet onthe fuel surcharge.

Provincial governments, using contractors procuredeither through international or local competitive bidding,will maintain the provincial highways. Since the existingprovincial government capacity is weak, MPW will needto support them in O&M at first. As with the Super Cor-ridor and National Highways, financing will be from in-ternal resources, either through a budget provision or afuel surcharge.

Local governments, again through local contractors,will do the maintenance of rural roads; in some places itcould as well be performed through community mobiliza-tion. The financing will have to be from grants-in-aid to beprovided by the central Government, to be complementedby resources from local government and communities on a60:40 ratio.

Institutional Implications

The various institutions involved in implementing andmaintaining a road network of this size include (i) MPW,(ii) provincial governments, (iii) local district governments,(iv) village shuras (councils), (v) MRRD, (vi) contrac-tors, and (vii) consultants.

To build, operate, and maintain the Super Corridorand National Highway network, MPW will have to havea core dedicated team in the “contract administrationdepartment” to take charge and ownership. It will requirevarious types of expertise in procurement, including prepa-ration of bid documents, evaluation of bids, negotiations,contract awards, contracts and administration under theInternational Federation of Consulting Engineers(FIDIC), quality control, and accounting and audit. A coreteam of 10 professionals is likely to suffice.

To build, operate, and maintain the provincial roads,provincial governments will need to establish a permanent

I nHeratprovince�enroutetoSabzakPass:unpavedandunmaintainedfor2decades�

31

Road Construction Unit (RCU), a dedicated team ofexperts whose responsibility will be to carry out (i) mainte-nance of provincial roads, (ii) emergency works on nationalhighways on contract (i.e., paid for by MPW), and in theshort to medium term (iii) construct provincial roads. Ini-tially, RCUs will need MPW assistance in contracting pro-cedures. The RCU in each province may consist of a projectmanager, an engineer, and an account and audit person,plus secretarial assistance: a total of 96 professionals plussecretarial staff.

Most provincial roads will be built under contract, butsince the capacity of local or nearby contractors may belimited, these contractors may subcontract the work(under their supervision) to the RCU. In addition, theRCU may also accept subcontracted work on a NationalHighway that passes through its province. The idea is tomake the unit self-sufficient and generate some additionalrevenue for maintenance of provincial roads. It is recog-nized that due to location difficulties, many of the prov-inces may not attract larger contractors. RCUs are to beequipped to perform maintenance, but when the equipmentis not being so utilized, it could be used for constructionwork under contract. RCUs could thus function as anenterprise unit, becoming both a cost and revenue center.This setup could operate in the same way as the zonal work-shops to be created by MPW under its PRR exercise.

Local governments, to facilitate local constructionwork under the MRRD and local maintenance for whichthey are responsible, will also have to establish a functional“road cell” having at least one engineer and one accountand audit person: a total of 744 professionals will be neededin the country’s 372 districts, plus secretarial staff. The vil-lage shuras will need to coordinate the work of road con-struction by appointing a focal person from villageresources. In this regard, MRRD’s capacity requirementsneed a thorough assessment and much enhancement.

The contractors and consultants will be recruited fromthe market using international bidding procedures.

Each of these institutional arrangements, at every level,will require a full-fledged office complete with office equip-ment, IT and communications facilities, and vehicles.

Capacity Building and InstitutionalStrengthening

Since all the institutions to be involved in road con-struction, operation, and maintenance were eroded as aresult of the long conflict, the capacity to undertake anywork at present is nonexistent: the capacity must be built

in all areas, including planning, design, procurement,negotiations, contract administration, quality control,environmental safeguards, social safeguards, gender issues,and others.

The Transport Sector Review recommended thatMPW set up a “capacity building department” employingthree international experts for a 3-year period and othershort-term expertise from time to time. This unit wouldwork closely with a number of staff from the ministry andprovide hands-on training in a number of areas. The maintask of this unit would be to facilitate the reform of theministry. An alternative would be to establish a projectmanagement unit (PMU) employing domestic and inter-national experts and staff (including Afghan expatriates),to manage the entire program of road and bridge construc-tion under MPW, from the feasibility stage right throughto execution, including design, procurement, contractadministration, and supervision. Such a model will fill thevoid in MPW and create capacity in the ministry within aspecific time frame. Local capacity building will comethrough counterpart staff working with the program man-agement consultants.

Afghanistan might draw some lessons for rebuildingstaff capacity from ADB’s experience in postconflict Cam-bodia, although Afghanistan suffered greater infrastruc-ture damage. In Cambodia, ADB found significant num-bers of engineering and construction staff available in theMinistry of Works, almost all of whom had been trained inthe Soviet Union and were out of touch with developmentsin construction methodology. As Afghanistan’s core groupof engineers has also been unable to keep pace with recentdevelopments in road construction, the following approachused by ADB might be considered for Afghanistan.

A group of MPW engineers was selected from thepool, placed on leave without pay, and assigned to work asstaff members of international contracting and consultingfirms providing construction supervision. Assigned andpaid by the contracting and consulting firms, staff wereaccountable to them.

At the same time, Cambodia’s MPW set up a perma-nent PMU reporting directly to the minister. Another coregroup of local engineers and accounting and other man-agement staff was appointed to this PMU, which receivedguidance from project implementation consultants fundedas part of the project.

The main disadvantage of this model was that, unlikethe ministry staff working for the contractors, the PMUhad to follow inefficient government procedures and regu-lations that became a bottleneck. These problems had tobe solved by government decrees providing the PMU with



fast-track authority. Checks and balances were providedthrough (i) maintenance of separate project accounts thatwere audited by independent auditors; and (ii) ADB’s reviewmission mechanism through which all aspects of implementa-tion were assessed including procurement audit.

While such a model helped build the capacity, theultimate goal of setting up a strong and lean ministry ofpublic works with reduced responsibilities to manage roadassets and outsourcing of design, construction, and con-struction supervision to the private sector is yet to beaccomplished.

Policy Reforms

To implement the proposed 7-year program as envis-aged, the Government will have to tackle several policyissues, with a view to restructuring MPW and the provin-cial and local governments.

MPW has taken positive steps towards policy andreform agenda: as described above, MPW has now estab-lished a system for upgrading the national road mainte-nance department to meet international standards andrequirements for sustaining subregional transit traffic. Ithas adopted a time-bound action plan for the implementa-tion of procurement guidelines, which the Government isconsidering. It has also finalized a report on road financ-ing and maintenance arrangements, and its draft memo toraise revenue through fuel taxes is under cabinet consider-ation, thus helping expedite partial self-financing of roadconstruction, operation, and maintenance.

MPW is also moving toward allowing private sectoroperations in the road sector. At present, consultants do allthe planning, design, procurement, and contracting fromthe private sector, including the actual implementation ofroad projects. In September 2002/1381, the Governmentadopted the Law on Domestic and Foreign Investment(#803), which effectively opened the entire economy toprivate sector participation.

MPW is actively working to upgrade the Super Cor-ridor and the Government is working on facilitating tradeand customs to improve transit of goods from neighboringcountries. Under the Central and South Asia Trade andTransport Forum, Afghanistan has agreed to participate intrade facilitation and build stronger trade and economicties with other countries. Such trade is expected to gener-ate substantial revenue.

Despite the numerous policy issues being tackled bythe MPW, a number of key steps still to be taken by theMPW include

• drafting the new Roads Act;• preparing a Road Sector Policy and Development Plan;

and• pressing for establishment of a road fund, either

through tolling, vehicle registration, and/or fuel sur-charge.

This last item is urgently needed, to expedite the plansunderway and to finance the operation and maintenance ofthe road network.

Civil Aviation and Tourism

Institutional Setup

MCAT used to be responsible for almost all aspects ofcivil aviation sector operation including• operation and maintenance of the country’s 22 airports

and the running of the ATM system,• general safety regulations,• provision of meteorological services, and• all communication, navigation and surveillance, and

electrics and mechanics.The national carrier, Ariana, has theoretically been corp-oratized but this has not been fully implemented.

A new institutional setup to implement the capitalinvestment proposed and ensuing operation and mainte-nance activities will have a larger role for the private sector.MCAT will be left with clearly defined roles that focus on• policy and strategy formulation,• planning and budgeting, and• database creation and maintenance.

The country’s airports will be managed by a numberof airport companies. It is expected that these, with theexception of the airport in Kabul, will essentially have pro-vincial ownership. The airports will be operationally self-financing (not necessarily their development). A separatecorporate self-financing entity will operate the air naviga-tion system (ANS) at the airports. Legislation establishingthe airports and ANS corporations will enable the facilitiesand services to be privately financed and operated as con-cessions. A system for economic regulation of the airportsand ANS, comprising mainly self-regulatory arrangements,will have been established. A fully corporatized Ariana,which will have freedom on commercial and operationalissues, will provide most air transport services, supple-mented by other private sector operators under a licensingsystem.

More specifically, the impact on MCAT organizationalstructure will be as follows:

33

• Ariana will be run without government involvementin commercial or operational matters. For matters per-taining to bilateral agreements on the use of Afghanairspace, the Government will continue to supportAriana so it can reestablish itself and build up its com-petitive position.

• A separate licensing division will be needed to handleapplications for licenses and to assess and allocate ten-ders to run noncommercial domestic services. Ondomestic routes, applications will be invited fromAriana, Afghan private sector operators, and non-Afghan operators established in Afghanistan. In duecourse, this division might be transferred to an inde-pendent authority in accordance with the general policylaid down in the National Development Framework.

• It may be necessary initially to take over responsibili-ties from MPW for capital works for airport infra-structure. Later, a corporate structure analogous toAriana or regional corporate structures will be neededto run the airports. This will involve defining the pow-ers of the Government.

• When the ATM system has been modernized, itsoperation could also be transferred either to an inde-pendent agency or to a separate corporate entity.

• Similarly, when the system of safety regulation isrestored, it too might be hived off into an organizationseparate from the central Government. If it is, thisfunction could well be combined with that proposedfor the licensing division discussed above.

Human ResourcesDevelopment

Since most trained personnel were lostduring the years of conflict, the human re-sources required to perform various func-tions under the new institutional setup maynot be readily available in Afghanistan, andassistance from outside to supply the re-quired capacity will need to continue for atleast the first 7-year period.

Human resource development, however,should start as a matter of urgency, as the skillsand knowledge required in the civil aviationsector cover a wide range of disciplines andsome require very long training periods.MCAT’s Civil Aviation Training Centerneeds to be substantially upgraded andstrengthened: its curriculum needs to be re-viewed and coordinated with those of other

higher educational institutions that could provide advancedtechnical training in the sector, and with training institutionsabroad that are readily available for specialized training.

For the foreseeable future, responsibility for humanresource development will rest with the Government. Aconcerted, broad-based effort needs to be made by the con-cerned ministries, including MCAT and the Ministries ofEducation and Higher Education.

Implementation Arrangements

To implement the vast program, MCAT will need toestablish a cell comprising expertise in planning, design-ing, procurement, contract administration, accounting,auditing, regulatory and legal, safety, air traffic manage-ment, airport management, training, and others as may beidentified in due course. This team will need support fromconsultants (international and domestic) on a whole rangeof issues, from planning and implementation of projects toinstitutional and policy and regulatory functions. This willneed to be worked out in greater detail in prioritized pro-grams. A capacity building unit is being developed inMCAT as part of the program management exercise un-dertaken by the World Bank.


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Institutional Structure to SupportTransportation Activities

The primary function of MOT will be strategic plan-ning; policymaking; and regulatory, enforcement, and safe-guard policies related to social issues, the environment, andgender and other crosscutting issues. Operation functionswill be separated from MOT. Most of the transport sec-tor—public transport, buses, trucks, and taxis—will be inthe hands of private operators.

The restructured MOT will have four main divisions:regulation; policy, strategy and planning; commercialoperations; and administration.

The Regulation Division willhave three agencies, including• a licensing agency, which will

mainly deal with the provision oflicenses to individuals/drivers;

• traffic management, which willdeal mainly with enforcement oflaws and regulations, traffic po-licing, safety rules, vehicle over-loading and roadworthiness stan-dards, pollution, and other cross-cutting issues of social and gen-der safeguard and promotion;and

• vehicle regulation, which willdeal mainly with the registration,taxation, inspection, and road-worthiness testing of vehicles.The Policy, Strategy and Plan-

ning Division will be responsible fortransport sector planning, includingrules and regulations for vehiclesafety; pollution standards; publicsafety; incorporation of social and human rights issues;penal acts for violation of laws, rules, and regulations;vehicle specifications; and roadworthiness standards.

The Commercial Operation Division will consist of• the Truck Agency, which will be responsible for

operation and maintenance for the truck fleet;• the Millie Bus Company, which will be responsible

for operation and maintenance for the Millie bus fleet;• the Trolley Agency, which will be responsible for trol-

ley bus operation and maintenance; and

• the Transport Terminal Agency, which will be respon-sible for building, operation, and maintenance of theterminal buildings to be used by the various unionsfrom the truck and bus industry.The Administration Division will be responsible for

MOT’s day-to-day office administration, budgeting,finance, audit and accounts, human resources, legal, dataresources, and management and operations. It will also havea dedicated department responsible for construction ofMOT facilities and procurement of equipment andvehicles required by MOT.

Private operators, subject to competition, will performtransport operations. This will apply to the provision oftaxi, road haulage, and bus transport, and all intermediateservices. Subject to international agreements, competitionis also expected to rule on international routes, includingbus transport and road haulage.

Transport operations will not normally receive any pub-lic subsidy. However, certain domestic services may be pro-vided under public service obligations, to ensure that mini-mum standards of accessibility in urban or remote ruralareas are met. Such public service obligations will be pro-cured by competitive tendering.

The main functions in the transport sector can be iden-tified as follows:• supply of transport services, including intermediate

services such as freight forwarding, clearing, and otheragency functions;

Thistwisting�dustytrackinBadghisprovince�partoftheRingRoadconnectingAfghanistan�smaincities�willbecomeafour�lane�SuperCorridor�highway�

35

• provision and preservation of infrastructure;• performance of regulatory activities to address public

interest issues; and• policymaking and overall monitoring of sector devel-

opment.The Government’s view is that allowing competition and

private sector participation will best attain efficiency in the pro-vision of transport services. Transport services are, in general,best produced subject to the minimum of economic regula-tion with regard to entry, capacity, and pricing.

In the near future, it will not be possible to privatizethe Ministry of Transport road haulage and bus transportoperations, as the country has received and is receiving asubstantial number of donated vehicles. These operationswill, however, be commercialized as a first step towardprivatization.

Implementation of the Program

The options for implementing and operating thevehicle fleet, including the Afghan international transport,the Millie Bus Company-public bus service system, thetrolley bus system with its network, and the electricalstation and technical workshop, are not broad. The first isMOT procurement and management of public transport.The second option is MOT procurement of the trucks andbusses and the trolley system, and the leasing or contract-ing out of management to private operators. The third isoutright privatization. Option 3 seems unviable in thepresent context, as there may not be many suitors fortrolley buses, which are a heavy investment, although truck-ing and bus operation may be completely privatized. Thesecond option seems to be most viable, as it is an interme-diate step toward facilitating private sector growth. TheGovernment is expected eventually to move towardcomplete privatization. Until then, trucks, buses, andtrolley buses will be operated on commercial terms underthe truck agency, Millie Bus Company, and trolley agency.However, the bulk of the vehicle fleet will be in thehands of the private sector.

To implement vehicle fleet support services, whichinclude technical and maintenance workshops for the fleetof government-owned trucks, Millie buses and trolleys, andtransport terminals for parking of the public and privatevehicles on intercity routes and in major cities, two optionsare considered. The first is that the workshops for the truck,bus, and trolley and the transport terminal be managed bythe respective commercial units of MOT, namely the truckagency, the Millie bus agency, the trolley agency, and the

transport terminal agency. The second option is to eithercompletely privatize these or to lease them out to privateoperators.

Vehicle fleet regulation, which will undertake activi-ties such as vehicle registration, vehicle taxation, androadworthiness regulations, must remain under governmentjurisdiction.

Capacity Building and InstitutionalStrengthening

Since all the institutions to be involved in road con-struction, operation, and maintenance were eroded as aresult of the long conflict, the capacity to undertake anywork at present is nonexistent: capacity will need to be builtat all levels and in all areas of transport. As in case of theother ministries, MOT needs to set up a “capacity build-ing department”. This unit will work closely with the min-istry staff and the private sector to provide hands-on train-ing in a number of areas. Capacity building will also takeplace through the ongoing PRR process.

MOT staff need to attend long- and short-term courseson various subjects. Kabul University or some technicalinstitute will need to design specific courses for people whomay be interested in this sector, whether from the public orprivate sector. The Government will also need to encour-age the private sector to provide such training courses, bothinternal and external.

Policy Reforms

To implement the program as envisaged in 7 years, theGovernment will need to tackle several policy issues with aview to restructuring MOT. The Transport Sector Reviewmade recommendations to strengthen and improve MOT’sservice delivery efficiency. The Government is reviewingthose recommendations and will provide its comments soon.The Government needs to take concrete and positive stepstoward a policy reform agenda as described below.

The Transport Sector Policy Statement (Annex 8) pre-pared as part of the Transport Sector Review is expeditingthe streamlining of ministries and departments, separatingregulatory functions from operations, developing a regula-tory framework, drafting and implementing standard pro-curement guidelines for the sector, and developing a pri-vate sector.

The Government has improved transparency andaccountability in transport sector operations. The AfghanAssistance Coordinating Authority (AACA) has drafted a



National Procurement Law and accompanying regula-tions. These have been submitted to the Ministry of Jus-tice and are currently under review. AACA has alreadycompleted the first round of procurement training.

As indicated above, the Government is encouragingprivate sector participation in the transport sector. In Sep-tember 2002 the Government adopted the Law onDomestic and Foreign Investment (#803), which effec-tively opened the entire economy to private participation.

However, the Government needs to move faster onsome of the other policy issues that will improve the func-tioning of the transport sector, such as the following:• Create an enabling framework for market-based com-

petition and efficiency in the transport sector; the Gov-ernment must corporatize the bus and truck servicesto open up the market.

• Establish safe and reliable transport services that meetgender, environmental, and involuntary resettlementobjectives; the Government is again looking at theseaspects.

• Improve institutional efficiency and effectiveness ofministries and departments in the transport sector.

• Establish a regulatory framework for the road trans-port subsector.To improve efficiency in the transport sector, the fol-

lowing recommendations of the Transport Sector Reviewneed to be implemented:• Commercialize MOT truck and bus operations;

design a project to prepare for commercialization.• Deregulate road transport in the areas of domestic road

haulage, bus transport, and taxi operations; marketentry and pricing should be free.

• Review current arrangements for enabling internationaltransport and transit, and formulate a strategy toprogress toward a policy.

• Improve and reinforce the road safety regime and theregulation of other public interest matters (e.g., axleload regulations).

• Review the scope for mandatory third-party insurance;vehicles in Afghanistan are normally not insured andno third party insurance system is effective. Manda-tory third party insurance is fundamental to efficientroad traffic as witnessed by the fact that virtually allcountries impose such a requirement.

• Ensure that reliance on market forces does not leavesome urban and rural groups physically isolated. For-

mulate a mechanism to ensure minimum levels ofaccess to road transport in urban and rural areas.

• Restructure and strengthen MOT for a new focus onpolicy, regulation, and monitoring, and build capac-ity; draw up an action plan to accomplish this.The Government will need to review existing

policies in the following areas and may need to modifythem:• toll policy,• road transport rules and regulations,• road traffic laws and regulations,• driving license regulations,• scrapping of destroyed vehicles,• transport services regulations,• urban public (Millie Bus Company) regulations,• carriage of goods laws,• commercial code of Afghanistan,• punishment of transport violators,• transit duties and loading regulations,• national insurance law,• construction works law,• law of municipalities,• transport operational committee of the Ministerial

Council,,,,,• regulations for organizing activities of the ministries

of tourism and transport,• regulations for collection of toll fees, and• income tax law.

RailwaysIt is proposed that MPW, through a newly established

Department of Railways, be responsible for implementingcivil works related to proposed dispatching and receivingstations at neighboring countries’ border termini. MPWshould also be responsible for the operation and mainte-nance of all facilities at these stations. MOC, MOT, andMOF will manage and regulate the actual receiving anddispatching of goods, the movement of rolling stock, andthe enforcement of customs rules and procedures. MOTwill have to develop regulations pertaining to railways andmovement of trucks across borders. Movement of goodswill be regulated by MOC rules, while customs tariff lawwill be applied by MOF.

37

The total investment cost of the transport sectorprogram is $12.3 billion over the 7-year period.This is almost equally divided between the public

and private sectors (Appendix 16). Public sector investmentis shown in Table 7 below and also in budget format inAppendix 15. Total estimated public sector investment is$6.1 billion, $5.7 billion in capital expenditure and theremaining $0.4 billion in O&M. The bulk of theinvestment is for roads and highways: $4.8 billion or 79%of the total. Public investment for civil aviation and tourismis projected at $0.8 billion over the planning period,followed by road transport and traffic ($0.4 billion) andrailways ($0.1 billion).

Major public investments in roads and highwaysinclude rehabilitation and improvement of Super Corridors,National Highways, provincial roads and rural roads.Specific road projects include the following segments:• Super Corridor: Shirkhan Bandar–Pol-e Khomri–

Kabul, Kabul–Kandahar–Spin Boldak, Naibabad–Mazar-e-Sharif–Andkhuoy–Herat–Delaram–Zaranj,Herat–Islam Qala and Delaram–Kandahar;

• National Highways: Farah Road–Delaram, East-WestHighway, North-South Highway 1, North-SouthHighway 2, Khulm–Eshkashem, Asadabad–Ghazninetwork, and Jabal Saraj–Nurestan network.In civil aviation and tourism, public investments cover

airports, air transport, manpower development, and capacitybuilding. Specific public sector-financed projects in civilaviation might include• rehabilitation and expansion of Kabul International

Airport,• rehabilitation and expansion of selected major regional

airports to international standard,• upgrading of 15 regional domestic airports,• acquisition of aircraft,• construction of hangars and parking bays at Kabul and

other international airports, and

• construction and training and related facilities.Specific public sector-financed projects in tourism include• identification and development of tourist sites,• upgrading transport and communication for the tourist

industry,• promotion of tourism, and• training for tour operators and others.

Total investment in road transport and traffic duringthe planning period is modest, basically covering the vehiclefleet, vehicle fleet support service, and vehicle fleetregulation. Specific projects for public sector investmentinclude• procurement of 75 trucks for Afghan International

Transport Company,• procurement of 963 buses for the restructured Millie

Bus Company,• rehabilitation and upgrading of six technical and

maintenance workshops for MOT-owned trucks andbuses,

• revival of the Kabul trolley bus system with 300 buses,• construction of four transport terminals in Kabul and

rehabilitation of 22 administrative buildings aroundthe country for transport management, and

• construction of city and interprovince bus depots/terminals.Public investments in railways are for five dispatching

and receiving stations. Given the investment phasingproposed, three separate projects could be envisagedcovering separately Islam Qala and Torghundi, Hairatanand Spin Boldak, and Torkham.

In all subprograms provisions have been made fortechnical assistance.

The entire amount of the additional public investmentrequirement for the 1383–1389/2004–2010 period will haveto be financed with fresh commitments from bilateral andmultilateral donors. However, commitment cycles aredifferent from investment cycles based on annual

Chapter IX

DEVELOPMENT PROGRAM ANDBUDGET

Development Program and Budget


disbursement/utilization, because commitments can bemade on a multiyear basis and project approvals by donoragencies invariably entail multiyear commitment fordisbursement of funds. Furthermore, in the context of thisrecosting exercise, additional commit2ments would haveto be made by donors in 1389/2010 to finance investmentsduring the 1390–1394/2011–2015 period required toachieve targets set for 1394/2015. Detailed commitmentrequirements are shown in Appendix 17 and Table 8. Theamount of funding commitment required is $932 million

in 1383/2004, $426 million in 1384/2005, $1,137 millionin 1385/2006, $3,689 million in 1386/2007 covering theperiod 1386–1388/2007–2009, and $4,904 million in 1389/2010 for the 5 years after that. Much of it is for roads andhighways amounting to $671 million in 1383/2004, $312million in 1384/2005, 840 million in 1385/2006, $2,930million in 1386/2007 covering the period 1386–1388/2007–2009 and $3,761 million in 1389/2010 for the 5 yearsafter that.

Subprogram/ProjectSubprogram/ProjectSubprogram/ProjectSubprogram/ProjectSubprogram/Project

Roads and Highways 345.01 630.38 848.18 2,930.30 4,753.87Super Corridor 0.00 0.00 0.00 1,742.53 1,742.53National Highways 122.83 245.65 298.03 420.85 1,087.35Provincial Roads 148.66 297.32 445.98 594.64 1,486.60Rural Roads 7.50 15.00 22.50 30.00 75.00Capacity Building 10.00 10.00 10.00 40.00 70.00Technical Assistance 2.79 5.63 7.82 28.18 44.42Operation and Maintenance 53.24 56.78 63.86 74.10 247.97

Civil Aviation and Tourism 41.07 83.50 216.42 484.31 825.30Airports 18.50 37.00 111.00 213.50 370.00Air Transport 5.55 12.60 19.80 88.05 126.00Manpower 3.00 6.00 18.00 33.00 60.00Capacity Building 7.80 11.20 23.60 53.40 96.00Technical Assistance .76 1.51 3.33 8.68 14.28Operation and Maintenance 5.47 15.19 40.69 97.68 159.02

Road Transport and TrafficVehicle Fleet, Support Services, and Regulation 30.37 45.55 60.73 167.01 303.65Capacity Building 6.10 9.94 14.18 37.10 67.31Technical Assistance 0.69 1.12 1.60 4.19 7.61Operation and Maintenance 3.75 5.63 7.50 20.63 37.50

RailwaysDispatching and Receiving Stations 40.00 40.00 30.00 14.00 137.00Capacity Building 2.00 3.00 4.00 6.00 15.00Technical Assistance 1.00 1.00 1.00 3.00 6.00Operation and Maintenance 2.00 4.00 5.00 5.00 16.00

TotalCapital Expenditure 471.98 824.11 1,178.61 3,657.53 6,132.24Operation and Maintenance 407.53 742.52 1,061.57 3,460.13 5,671.75

Total Cost2004–2010/1383–1389

2007–2010/1386–13892006/13852005/13842004/1383

Source: Staff estimates.

Table 7. Transport Sector Public Investment Program 1383–1389/2004–2010($ million)

39Development Program and Budget

Subprogram/ProjectSubprogram/ProjectSubprogram/ProjectSubprogram/ProjectSubprogram/Project

Roads and Highways 670.78 312.43 840.36 2,930.30 3.760.65 8,514.52Super Corridor 0.00 0.00 0.00 1,742.53 903.13 2,645.66National Highways 122.83 245.65 298.03 420.85 1,369.15 2,456.50Provincial Roads 445.98 0.00 445.98 594.64 1,345.20 2,831.80Rural Roads 22.50 0.00 22.50 30.00 75.00 150.00Capacity Building 10.00 10.00 10.00 40.00 40.00 110.00Technical Assistance 16.24 0.00 0.00 28.18 28.18 72.60Operation and Maintenance 53.24 56.78 63.86 74.10 0.00 247.97

Civil Aviation and Tourism 106.92 38.99 195.09 484.31 1,062.08 1,887.38Airports 55.50 0.00 111.00 203.50 1,000.00 1,370.00Air Transport 5.55 0.00 19.80 88.05 0.00 126.00Manpower 27.00 0.00 0.00 33.00 0.00 60.00Capacity Building 7.80 11.20 23.60 53.40 53.40 149.40Technical Assistance 5.60 0.00 0.00 8.68 8.68 22.96Operation and Maintenance 5.47 15.19 40.69 97.68 0.00 159.02

Road Transport and Traffic 43.62 61.11 82.41 228.93 41.29 457.36Vehicle Fleet, Support Services, and Regulation 30.37 45.55 60.73 167.01 0.00 303.65Capacity Building 6.10 9.94 14.18 37.10 37.10 104.41Technical Assistance 3.41 0.00 0.00 4.19 4.19 11.80Operation and Maintenance 3.75 5.63 7.50 20.63 0.00 37.50

Railways 111.10 13.94 19.18 45.10 40.10 229.41Dispatching and Receiving Stations 100.00 0.00 0.00 0.00 0.00 100.00Capacity Building 6.10 9.94 14.18 37.10 37.10 104.41Technical Assistance 3.00 0.00 0.00 3.00 3.00 9.00Operation and Maintenance 2.00 4.00 5.00 5.00 0.00 16.00

Total 932.42 426.46 1,137.03 3,688.63 4.904.13 11,088.67Capital Expenditure 867.97 344.87 1,109.99 3,491.23 4.904.13 10,628.18Operation and Maintenance 64.45 81.59 117.04 197.40 0.00 460.40S

TotalFinancing

Requirement2004–2010/1383–1389

2007/13861386138613861386

2006/1385

2005/1384

2004/1383


Table 8. Transport Sector Financing Requirement 1383–1389/2004–2010($ million)

2010/1389

Appendixes 41

Primary RoadsPrimary RoadsPrimary RoadsPrimary RoadsPrimary RoadsNo.No.No.No.No. RoadRoadRoadRoadRoad Length (km)Length (km)Length (km)Length (km)Length (km)1 Kabul–Mazar-e-Sharif 4272 Mazar-e-Sharif–Sheberghan 1503 Sheberghan–Andkhuoy–Meymaneh 2094 Maymaneh–Herat 4105 Kabul–Ghazni 1496 Ghazni–Qalat 2197 Qalat–Kandahar 1378 Kandahar–Herat 5889 Pol-e Khumri–Kunduz–Shirkhan Bandar 169

10 Hairatan–Durahi Mazar 4811 Kabul–Jalalabad–Torkham 22412 Herat–Torghundi 11913 Herat–Qala Islam 22414 Kandahar–Spin Boldak 10515 Kabul–Gardeyz–Khowst 220

Total (km) 3.398Total (km) 3.398Total (km) 3.398Total (km) 3.398Total (km) 3.398

Secondary RoadsSecondary RoadsSecondary RoadsSecondary RoadsSecondary RoadsNo.No.No.No.No. RoadRoadRoadRoadRoad Length (km)Length (km)Length (km)Length (km)Length (km)1 Herat–Chaghcharan 3512 Delaram–Parchaman–Masjednegar 3153 Bamian–Chaghcharan 3444 Bamian–Charikar 1205 Bamian–Doshi 1606 Bamian–Mazar-e-Sharif 3807 Kandahar–Tarin Kowt–Shaikh 4518 Konduz–Taloqan–Eshkashem 3179 Jalalabad–Asadabad–Kamdesh 220

10 Gardeyz–Sharam–Orgon 115Total (km) 2,773Total (km) 2,773Total (km) 2,773Total (km) 2,773Total (km) 2,773

Provincial RoadsProvincial RoadsProvincial RoadsProvincial RoadsProvincial RoadsNo.No.No.No.No. RoadRoadRoadRoadRoad Length (km)Length (km)Length (km)Length (km)Length (km)1 Delaram–Chekhansur 202

Provincial Roads Provincial Roads Provincial Roads Provincial Roads Provincial Roads cont’d.cont’d.cont’d.cont’d.cont’d.No.No.No.No.No. RoadRoadRoadRoadRoad Length (km)Length (km)Length (km)Length (km)Length (km)2 Chekhansur–Zaranj 623 Delaram–Farah 1334 Farah–Chekhansur 1495 Farah–Lashjavin–Chekhansur 1676 Lashjavin–Zaranj 897 Farah–Shindand 1498 Shindand–Klainazarkhan 1319 Shindand–Shahrak 299

10 Enjil–Gorian 6411 Gereshk–Lashkar Gah 3312 Lashkar Gah–Garamsir 6013 Garamsir–Desho 12514 Desho–Charburjak 14715 Charburjak–Zaranj 10816 Gereshk–Musakala 5617 Gereshk–Naozad 10018 Musakala–Bandekajaki 9419 Argandab–Khakrez 6520 Khakrez–Nish 6821 Tarin Kowt–Kehrawod 6022 Kehrawod–Kajran 7223 Trinkot–Oruzgan 9224 Oruzgan–Malistan 8425 Malistan–Nawar 15526 Nawar–Ghazni 9927 Ghazni–Sharan 5628 Sharan–Zargonshar 4829 Zargonshar–Wazakhowa 10730 Wazakhowa–Voormamy 3631 Kalat–Shinkai 7032 Shinkai–Shamalzai 3533 Ghazni–Pol-e Alam 8034 Shekhabad–Chak–Behsood 11035 Gardeyz–Ghazni 86

Appendix 1. Road Lengths in Different Road Categories

APPENDIXES


Provincial Roads Provincial Roads Provincial Roads Provincial Roads Provincial Roads cont’d.cont’d.cont’d.cont’d.cont’d.No.No.No.No.No. RoadRoadRoadRoadRoad Length (km)Length (km)Length (km)Length (km)Length (km)36 Gardeyz–Jajee 6937 Pol-e Alam–Jajee 6338 Garghaiy–Laghman–Nurestan 6739 Asadabad–Pech 4540 Sarobi–Mahmudragi 8841 Jabal Saraj–Panjsher–Zeebok 33542 Khenjan–Andarab–Nahrin–Baghlan 26043 Taloqan–Worsaj 9144 Feyzabad–Ragh 5245 Imamsahib–Dashteearchy 62

Appendix 1. Road Lengths in Different Road Categories (cont’d.)

Source: Transport Sector Review, October 2003.

Provincial Roads (continued)Provincial Roads (continued)Provincial Roads (continued)Provincial Roads (continued)Provincial Roads (continued)No.No.No.No.No. RoadRoadRoadRoadRoad Length (km)Length (km)Length (km)Length (km)Length (km)46 Dashteearchy–Khojaghar–Yangakala– 162

Rostag47 Konduz–Abdanemiralam–Kholm 11348 Ageha–Khamyab 8549 Sheberghan–Dowlatabad 10050 Sheberghan–Sar-e Pol 5551 Sar-e Pol–Sangeharak–Bulkhab 14652 Sar-e Pol–Bolcheragh 80

Total (km) 5,364Total (km) 5,364Total (km) 5,364Total (km) 5,364Total (km) 5,364

Appendixes 43

Super Corridor: Super Corridor: Super Corridor: Super Corridor: Super Corridor: Dual carriageway (4-lane) highway, (2lanes of 7-m carriageway and 2-m shoulders; already inprogress/committed in most stretches.

S No.S No.S No.S No.S No. StretchStretchStretchStretchStretch Length (km)Length (km)Length (km)Length (km)Length (km)1 Shirkhan Bandar–Pol-e Khomri 1382 Pol-e Khomri–Doshi 473 Doshi–Salang–Kabul 1704 Kabul–Ghazni–Kandahar 4835 Kandahar–Spin Boldak 103.56 Hairatan–Naibabad 577 Naibabad–Pol-e Khomri 1648 Naibabad–Mazar-e-Sharif 269 Mazar-e-Sharif–Andkhuoy 197

10 Andkhuoy–Herat 55011 Herat–Delaram 34812 Delaram–Zaranj 22313 Herat–Torghundi 11914 Andkhuoy–Aqina 3715 Herat–Islam Qala 12416 Kabul–Jalalabad 14217 Jalalabad–Torkham 8218 Delaram–Kandahar 216

Total (Super Corridor) 3,226.5Total (Super Corridor) 3,226.5Total (Super Corridor) 3,226.5Total (Super Corridor) 3,226.5Total (Super Corridor) 3,226.5

National Highways: National Highways: National Highways: National Highways: National Highways: 2 lanes, 7-m carriageway, 2-m pavedshoulders on either side.

A. A. A. A. A. Road Connections to Provincial Headquarters.Road Connections to Provincial Headquarters.Road Connections to Provincial Headquarters.Road Connections to Provincial Headquarters.Road Connections to Provincial Headquarters.S No.S No.S No.S No.S No. StretchStretchStretchStretchStretch Length (km)Length (km)Length (km)Length (km)Length (km)1 Badakhshan Province: (a) Feyzabad–Taloqan 120

(b) Feyzabad–Baharak–Zebak–Eshkamesh 1702 Takhar Province: Taloqan–Konduz 753 Konduz Province: Khulm–Konduz 113

(Konduz–Pol-e Khomri also connected tointernational link Pol-e Khomri–Konduz–Shirkhan Bandar)

4 Baghlan Province: (Pol-e Khomri connectedto Ring Road)

5 Samangan Province (Aybak connected toRing Road)

6 Balkh Province (Mazar-e-Sharif on Ring Road)7 Jowzjan Province (Sheberghan on Ring Road8 Sar-e Pol Province (incl. at #33 below—leading

to gas and oil resources)9 Faryab Province (Meymaneh on Ring Road)

10 Badghis Province (Kale Now connected toRing Road)

11 Herat Province (Herat on Ring Road)12 Farah Province: (a) Farah Road–Farah 70

(b) Farah–Bakwa–Delaram 13313 Nimruz Province (Zaranj connected to Ring

Road at Delaram)

National Highways ANational Highways ANational Highways ANational Highways ANational Highways A cont’d.cont’d.cont’d.cont’d.cont’d.S No.S No.S No.S No.S No. StretchStretchStretchStretchStretch Length (km)Length (km)Length (km)Length (km)Length (km)14 Helmand Province: Gereshk–Lashgar Gah 5015 Kandahar Province (Kandahar on Ring Road)16 Zabol Province (Qalat connected to Ring Road)17 Oruzgan Province: Kandahar–Tarin Kowt 17318 Ghazni Province (Ghazni on Ring Road)19 Paktika Province: Ghazni–Saran 56

Saran–Zurmat 6020 Paktiya Province: Ghazni-Zurmat–Gardeyz 8621 Khost Province: (a) Gardeyz–Khost 105

Khost–Gulam Khan 6022 Lowgar Province: (a) Kabul-Pol-e Alam 62

(b) Gardeyz–Pol-e Alam 62(c) Pol-e Alam–Shikhabad 41 (Syeda Bad–Vardak

23 Nangarhar Province:(a) Kabul–Bagrami–Kotla 175(b) Lataband–Kohgani–Jalalabad —(Jalalabad also on international link)

24 Vardak Province: Panjab–Hisa-i-Awal– 154Basud (Maidan Shahr on Ring Road)

25 Kabul Province (Kabul on Ring Road)26 Laghman Province: Jalalabad–Mihtarlam 2427 NuristanProvince: Mihtarlam–Nuristan 4328 Konar Province: Jalalabad–Asadabad 10229 Kapisa Province: Jabal Saraj–Kohistan– 105

Mahmud Raqi–Nijrab–Sarobi30 Parvan Province (Charikar on Ring Road)31 Bamian Province: Charikar–Bamian 16032 Ghowr Province: Bamian–Yakawlang– 353

Panjab–Lalwa Sarjangai–Chaghcharan

B. Roads Leading to Mines, Oil and Gas LocationsB. Roads Leading to Mines, Oil and Gas LocationsB. Roads Leading to Mines, Oil and Gas LocationsB. Roads Leading to Mines, Oil and Gas LocationsB. Roads Leading to Mines, Oil and Gas LocationsS No.S No.S No.S No.S No. RoadRoadRoadRoadRoad Length (km)Length (km)Length (km)Length (km)Length (km)33 Sheberghan–Sar-e Pol 5534 Maidan Shahr–Bamian 17035 Doshi–Kahmand 140

(Road joins Charikar–Bamian near Shibar)35 (a) Pol-e Alam–Khoshi 17

(b) Herat–Shedai 10 (Balance of distance part of Srl #41 below)(c) Sheberghan–Khwaja Di Koh (already considered part of National Highway)(d) Dara-i-Suf (considered part of Super Corridor)(e) Sabazak Pass (already considered part of National Highway)(f) Khowst (Metun)–Shikh Amnir (Gurbuz) 7(g) Khanishin–Lashkar Gah 218

Appendix 2. Roads and Highways Network


National HighwaysNational HighwaysNational HighwaysNational HighwaysNational Highways B B B B B cont’d.cont’d.cont’d.cont’d.cont’d.S No.S No.S No.S No.S No. StretchStretchStretchStretchStretch Length (km)Length (km)Length (km)Length (km)Length (km)

(h) Bangi–Khawaja Ghar–Yangi Kala 105\(i) Herat–Kamatkala (already considered part of National Highway)(j) Baharak–Jurm 18

C.C.C.C.C. Other Roads Other Roads Other Roads Other Roads Other Roads37 Delaram–Ghowr (Taywara) 21738 Ghowr (Taywara–Chaghcharan) 23539 Tarin Kowt–Day Kundi 21040 Day Kundi–Takawlang (only Day Kundi– 85

Rd junction of Bamian–Chaghcharan considered to avoid duplication with East-West Highway)

C. Other Roads C. Other Roads C. Other Roads C. Other Roads C. Other Roads cont’d.cont’d.cont’d.cont’d.cont’d.S.No.S.No.S.No.S.No.S.No. StretchStretchStretchStretchStretch Length (km)Length (km)Length (km)Length (km)Length (km)41 Herat–Mahala-e-Bala (Karukh–Sar-e-Kuch 290

(Obe)–Chishte Sharif–Salma–Shahrak(Ghowr)–Gard Holang iintersection withDelaram–Taywara–Chaghcharan–North-South 2 Highway)

42 Chaghcharan–Belchiragh–Sar-e Pol 26943 Yakawlang–Dara-i-Suf 15044 Dara-i-Suf–Sholgara–Mazar-e-Sharif 157

Total (National Highways) 4,913Total (National Highways) 4,913Total (National Highways) 4,913Total (National Highways) 4,913Total (National Highways) 4,913

Appendix 2. Roads and Highways Network (cont’d.)

Note: — = not available.Source: Ministry of Public Works.

Appendixes 45

Takhar ProvinceTakhar ProvinceTakhar ProvinceTakhar ProvinceTakhar Province1 Darqad Darqad–Yangi Kala 502 Yangi Kala Yangi Kala–Khwaja Ghar (already part of NH)3 Taloqan Khwaja Ghar–Taloqan (meets NH Taloqan–Konduz already

under construction)4 Bangi Taloqan–Bangi (already part of NH Taloqan–Konduz under construction)5 Chal Bangi–Chal —6 Farkhar Chal–Farkhar 477 Warsaj Farkhar–Baghe Dasht (Warsaj) 558 Eshkamesh Bangi–Eshkamesh (already part of NH Konduz–Taloqan–Feyzabad-

Eshkashem)9 Kalafgan Farkhar–Kalafghan (part of road connection under NH—refer NH 10

Table Srl1 (a))10 Rustaq Rustaq–Cha Ab 4811 Cha Ab Cha Ab–Yangi Kala 3512 Taloqan Chal–Taloqan 29

Total 274Total 274Total 274Total 274Total 274

Badakshan ProvinceBadakshan ProvinceBadakshan ProvinceBadakshan ProvinceBadakshan Province1 Baharak Baharak–Jurm (already part of NH)2 Jurm Jurm–Sekwa (Kuran Wa Munjan) —3 Kuran Wa Munjan Sekwa–Zebak 954 Zebak Zebak–Ishkashim (already part of NH)5 Eshkashem EIshkashem–Baharak (already part of NH)6 Baharak Baharak–Zebak (already part of NH)7 Wakhan Ishkashim–Khandud 918 Feyzabad Baharak–Feyzabad (already part of NH)9 Keshem Feyzabad–Keshem (already part of NH)

10 Shar-e-Bazurg Keshem–Shar-e-Bazurg 6011 Ragh Shaar-e-Bazurg–Murch (Ragh) 5612 Khwahan Murch–Khwahan 7013 Shighnan Faizabad–Shighnan (joins Faizabad–Baharak leg of NH) 9014 Darwaz Shighnan–Nusai (Darwaz) 11015 Parwan-Badakshan Zenya (Parwan)–Sekwa (Kuran Wa Munjan) 155

(interprovince)Total 727Total 727Total 727Total 727Total 727

Herat ProvinceHerat ProvinceHerat ProvinceHerat ProvinceHerat Province1 Herat Herat–Mahala-e-Baba (Kuruh)–Sar-e-Kucha (Obe) (to be part of

East-West Highway)2 Obe Sar-e-Kucha (Obe)–Chishte Sharif (to be part of East-West Highway)3 Kohsan Kohsan–Ghoryan (major part covered under RH) 104 Ghoryan Ghoryan–Zenda Jan 325 Zenda Jan Zenda Jan–Rawza Bagh (Guzara) 646 Injil Rawza Bagh–Injil (already part of RH)7 Injil Injil–East-West Highway junction —8 Pashtun Zarghun Rawza Bagh–Gim (Pashtun Zarghun) 609 Pashtun Zarghun Gim–Sar-e-Kucha —

10 Adrakhan Rawza Bagh–Adrakhan (already part of RH)11 Shindand Adraghan–Shindand (major part covered as RH) 1012 Farsi Shindand–Farsi 15013 Gulran Kohsan–Gulran 85

S No.S No.S No.S No.S No. DistrictDistrictDistrictDistrictDistrict StretchStretchStretchStretchStretch Length (km)Length (km)Length (km)Length (km)Length (km)

* Connecting provincial headquarters to district headquarters and/or district headquarters to district headquarters; 7-m carriagewaywith 1.5-m hard shoulder on either side.

Note: NH = National Highway; RH = Regional Highway/Road; —= not available.

Appendix 3A. Provincial Roads* by Province and District


14 Kushk Gulran–Kushk 7015 Kush Kuhna Kushk–Kushk Kuhna (part covered as RH) 4016 Gulran Gulran–Zulfiqar 80


Konduz ProvinceKonduz ProvinceKonduz ProvinceKonduz ProvinceKonduz Province1 Ali Abad Ali Abad–Khanabad 372 Khan-Abad Khan-abad–Char Dara (already part of NH)3 Char Dara Char Dara–Qalizal 624 Imamsahib Imamsahib–Archi 455 Imamsahib Imamsahib–Qalizal 676 Chardara Char Dara–Aliabad (already part of RH)

Total 174otal 174otal 174otal 174otal 174

Baghlan ProvinceBaghlan ProvinceBaghlan ProvinceBaghlan ProvinceBaghlan Province1 Baghlan Baghlan–Baghlan Jadid 302 Doshi Doshi–Khanjan (already part of RH)3 Khanjan Khanjan–Banu (Andarab) 384 Tala wa Barfak Bazartala–Dyab Mikh Zarin (already part of NH)5 Dyab Mikh Zarin Dyab Mikh Zarin–Kahmand (already part of NH)6 Khowst wa Firing Khowst Wa Firing–Burka 707 Nahrin Bashiqala–Burka 238 Doshi Doshi–Bazar Tela (already part of NH)9 Baghlan Baghlan–Bashiqala (Nahrin) 50

10 Parwan-Baghlan Hise-i-Awal–Panjsher–Khost Wa Firing 80(interprovince)

TOTAL 291TOTAL 291TOTAL 291TOTAL 291TOTAL 291

Ghor ProvinceGhor ProvinceGhor ProvinceGhor ProvinceGhor Province1 Saghar Saghar–Tolak 742 Tolak Tolak–Sharak 603 Sharak Sharak–Chaghcharan (to be part of of East-West Highway)4 Chaghcharan Chaghcharan–Lal Sarjangl (to be part of East-West Highway)5 Taywara Ghowr–Shahrak 1106 Taywara Ghowr–Pasaband (to be part of North-South Highway 1)7 Pasaband Pasaband–Shahrak (already considered part of North-South

Highway 1)Total 244Total 244Total 244Total 244Total 244

Bamian ProvinceBamian ProvinceBamian ProvinceBamian ProvinceBamian Province1 Waras Waras–Panjab 242 Panjab Panjab–Yakawlang (to be part of East-West Highway)3 Yakavlang Yakawlang–Bamian–Sheber (to be part of East-West

Highway)Total 224Total 224Total 224Total 224Total 224

Konar ProvinceKonar ProvinceKonar ProvinceKonar ProvinceKonar Province1 Nurgal Nurgal–Khas Konar 252 Khas Konar Khas Konar–Chawki 103 Chawki Chawki–Narang (already part of NH)4 Narang Narang–Sarkany (already ipart of NH)5 Sarkany Sarkany–Marawar (already part of NH)6 Asadabad Asadabad–Mano Ghai (Pech)7 Pech Mano Ghai–Kandai (Chapa Dara) 158 Bar Konar Morawar–Asmar 26


Appendix 3A. Provincial Roads by Province and District (cont’d.)

Appendixes 47

9 Dangam Asmar–Dangam 1210 Narai Dangam–Narai 4011 Nangarhar–Konar Jalalabad–Koma–Goshta–Lalpor 39

(interprovince)TotalL 195TotalL 195TotalL 195TotalL 195TotalL 195

Nangarhar ProvinceNangarhar ProvinceNangarhar ProvinceNangarhar ProvinceNangarhar Province1 Hisarak Ragha–Mama Khel (Sherzad) (already part of NH except 5 km) 52 Sher Zad Mama Khel–Kazie (Khogyani) (already part of NH except 9 km) 93 Khogyani Kazia–Sultanpur (Surkh Rod) (already part of NH)4 Khogyani Kazia–Agan (Panchir Wa Agam) 265 Panchir Wa Agam Agam–Chaprahar 86 Jalalabad Jalalabad–Basud 97 Kama Basud–Sangar Sarai (Kama) 238 Goshta Sangar Sarai–Goshta 199 Rodat Shahi Kot–Jalalabad road 9

10 Dih Bala Kotwal–Shahi Kot (Rodat) 2511 Bati Kot Nadir Shah Kot–Jalalabad road 612 Shinwar Ghanikhe–Jalalabad road 613 Achin Sar Kala–Ghanikhe 1614 Nazyan Nazyan–Ghanikhe 1615 Lal Pur Lal Pur–Jalalabad road 716 Dur Baba Dur Baba–Jalalabad road 4017 Khas Konar Shewa–Jalalabad (already part of NH)18 Dar-i-Noor Panja Khel–Shewa 13


Laghman ProvinceLaghman ProvinceLaghman ProvinceLaghman ProvinceLaghman Province1 Qarghay Lal han Abad–Mihtarlam (already part of NH)2 Mihtarlam Mihtarlam–Alingar (already part of NH)3 Alishang Miharlam–Alishang 184 Dawlat Shah Alighang–Dawlat Shah 20


Lowgar ProvinceLowgar ProvinceLowgar ProvinceLowgar ProvinceLowgar Province1 Charkhi Qala-e-Amudin Road–Kabul Khost 162 Baraki Barak Qala-e-Amudin–Baraki Barak 203 Pol-e Alam Baraki Barak Road–Kabul–Pol-e Alam (already part of NH)4 Khoshi Pol-e Alam–Khoshi (already part of NH)5 Mahammud Agha Pol-e Alam–Kolangar–Mohammud Agha (already part of NH)6 Lowgar–Ghazni Charagh–Zana Khan–Ghazni 40

(interprovince)7 Lowgar–Paktya Pol-e Alam–Khoshi–Azra 42


Kapisa ProvinceKapisa ProvinceKapisa ProvinceKapisa ProvinceKapisa Province1 Kohistan Ezatkhel Sufia–Haji Khel (Koh Band) 172 Kohband Haji Khel road junction with Narjab–Mahmud Raqi at Dumama 123 Nijrab Nijrab–Tagab (already part of NH)4 Tagab Tagab–Alasai 115 Kohistan–Mahmud Ezatkhel Sufia–Mahmud Raqi

Raqi6 Mahmud Raqi Nijrab–Mahmud Raqi (already part of NH)





Parvan ProvinceParvan ProvinceParvan ProvinceParvan ProvinceParvan Province1 Shekh Ali Saqa–Salaf Zada (Surkh Parsa) 312 Surkh Parsa Salaf Zada–Siyagerd (Gorband) 303 Gorband Siyagerd–Qaq Shal (Shinwari) 204 Shinwari Qaq Shal–Charikar 235 Charikar Charikar–Bagram (a new asphalt road of about 57 km runs from 27

Kabul–Bagram and connects to Charikar)6 Bagram Bagram–Mahamad Khel 217 Panjsher Esaqabad (Rokha)–Panjsher 408 Jabul Saraj Jabul Saraj–Salang (already part of RH)9 Hisa-i-Awali Panjsher Rokha–Zenya 30


Vardak ProvinceVardak ProvinceVardak ProvinceVardak ProvinceVardak Province1 Jalrez Tajikha–Ashro–Madan Sharh —2 Maidan Shahr Maidan Sharh–Khan e Ezat (Nirkh) 83 Sayeda Bad Nayeda Bad–Chak Warda 284 Chak Vardak Chak Vardak–Miran (Day Mirda) (4 km in common with Srl 3 above) 545 Hisa-i-Awali Bihsud Tajikan–Zar Kharid —6 Markazi Kahud Zar Kharid–Bahsud


Kabul ProvinceKabul ProvinceKabul ProvinceKabul ProvinceKabul Province1 Deh Sabz Trakhel–Kabul–Shakardara (30 km included in Kabul–Javul Saraj 6

and Kabul–Doshi roads)2 Paghman–Kabul Kabul–Park e Jmhuriat 183 Mir Bacha Kot Mir Bacha Kot–Kalakan (already part of RH)4 Kalakan Kalakan–Guldara (part of road included in RH) 105 Qara Bagh Kalakan–Qara Bagh (already part of RH)6 Astalif Qara Bagh–Astalif 87 Bagram Kabul–Hussain Khel (Bagram) (already part of NH)8 Chahar Asyad Qalai Naim–Hussain Khel (Bagrami) (meets NH Kabul–Pule Alam) 109 Khaki Jabar Khord Kabul–Hussain Khel (Bagrami) (meets NH) 16

10 Bagrami Hussain Khel–Sorobi (already part of NH)Total 68otal 68otal 68otal 68otal 68

Nurestan ProvinceNurestan ProvinceNurestan ProvinceNurestan ProvinceNurestan Province1 Kamdesh Kamdesh–Barge-e-Matal 352 Waygal Kamdesh–Waygal 903 Nurestan Mangaraj–Nurestan–Mandol 704 Wama Wama–Dahate Pyar (Mandol) 120


Jowzjan ProvinceJowzjan ProvinceJowzjan ProvinceJowzjan ProvinceJowzjan Province1 Darzab Darzab–Sheberghan 992 Khwaja Du Koh Sheberghan–Khwaja Du Koh (already part of RH)3 Mardyan Mardyan–Azcha 204 Aqcha Aqcha–Char Shingaw (Mingajik) 205 Khamyab Char Shingaw–Choghil Tapa (Khamyab) 756 Qarqin Choghil Tepa–Khan Tepa 307 Mardyan Mardyan–Feyzabad 32


Paktia ProvincePaktia ProvincePaktia ProvincePaktia ProvincePaktia Province1 Zurmat Zurmat–Gardez (already part of NH)2 Shawak Gardez–Shawak 333 Jadran Shawak–Waza 10



Appendixes 49

Paktia ProvincePaktia ProvincePaktia ProvincePaktia ProvincePaktia Province cont’d.4 Shamal Waza–Shamal 215 Sayyid Karam Gardeyz-Sayyid Karam (Paktia) (already part of NH)6 Lija Mangal Sayyid Karam–Hasan Khel (Lija Mangal) 387 Chamkani Hasan Khel–Shar-e-Now (Chamkani) 248 Dand Wa Patan Shar-e-Now–Chaparai (Dand Wa Patan) 119 Jaji Hasan Khel–Ali Khel (Jaji) 18

10 Azra Ali Khel–Azra 70Total 225Total 225Total 225Total 225Total 225

Helmand ProvinceHelmand ProvinceHelmand ProvinceHelmand ProvinceHelmand Province1 Nad Ali Nad Alil–Lashkargah 402 Dishu Naqil-e Desho–Khanishin (Reg) (already part of NH)3 Reg Khanishin–Garamser (already part of NH)4 Barekzayi Garamser–Hazaraz (already part of NH)5 Barekzayi Hazaraz–Ayanek —6 Lashkar Gah (HP) Lashkar Gah–Gereshk (already part of NH)7 Nahari Saraj Gereshk–Hawzad 758 Nahari Saraj Safian–Sangin–Kajaki (meets Kanadah–Girishk NH) 759 Musa Qla Musa Qala–Boghran Khola (Baghran) 80

10 Washer Washer–Nawzad 9011 Washer Washer–Sangilan (at Sangilan this road meets NH) 30


Balkh ProvinceBalkh ProvinceBalkh ProvinceBalkh ProvinceBalkh Province1 Mazar-e-Sharif Mazar-e-Sharif–Dehdadi 152 Dehdadi Dehdadi–Baba Ewaz 453 Sholgara Baba Ewaz–Keshendeh 304 Chimtal Chimtal–Dehdadi 305 Charkint Mazar-e-Sharif–Charkint 406 Kaldar Kaldar–Haritan 407 Shortepa Haritan–Shortepa 858 Balkh Balkh–Dawlatabad 259 Chahar Bolak Road Junction at Baido-Chahar Bolak (meets RH) 25

10 Nahri Shahi Balkh–Nahri Shahi 37Total 372otal 372otal 372otal 372otal 372

Paktika ProvincePaktika ProvincePaktika ProvincePaktika ProvincePaktika Province1 Sharan Sharan–Mata Khan —2 Mata Khan Mata Khan–Sultani (Sar Hawza) 343 Urgun Sultani–Urgun 304 Sarobi Urgun–Sarobi 205 Barmal Sarobi–Barmal 406 Gayan Urgun–Ster Gayan 507 Ziruk Urgun–Surai 328 Nika Surai–Nik 89 Gomal Qalai Shekh Nor–junction at Shatbara–Sultani (Sarhawza) —

10 Wor Mamay Wor Mamay–Waza Khwa 3511 Zarghun Shahr Waza Khwa–Jani Khel–Zarghun Shahr 9012 Sharan Zarghun Shahr–Yusof Qala–Sharan 4013 Dila Khoshamand–Jani Khel (Zarghun Shahr) 2214 Ghazni–Paktika Qara Bagh–Zarghun Shahr–Gomal 130

(interprovince)15 Ghazni–Paktika Nawa–Waza Khwa 59

(interprovince)16 Gomal Sarobi–Gomal 45





Oruzgan ProvinceOruzgan ProvinceOruzgan ProvinceOruzgan ProvinceOruzgan Province1 Chora Chora–Tarin Kowt (already part of NH)2 Nesh Tarin Kowt–Dinar Khel (Nesh) 333 Dihrawud Dinar Khel–Shar-e Now 304 Kijran Shar-e Now–Kijran 725 Shahidi Hassas Kijran–Nawmad 186 Gezab Nawmad–Gezab 907 Shahristan (Gezab) Ghawroch–Khesraw (45 km from Gezab–Ghawroch 25

part of NH)8 Day Kundi Ghawroch–Khadir (already part of NH)9 Khas Uruzgan Tarin Kowt–Oruzgan (Khas Oruzgan) 92


Faryab ProvinceFaryab ProvinceFaryab ProvinceFaryab ProvinceFaryab Province1 Qaysar Qaysar–Dewar Khana (Almar) (already part of RH)2 Almar Dewar Khana–Maimana (already part of RH)3 Kohistan Qala–Meymaneh 624 Bilchiraagh Sarchakan–Meymaneh 585 Shirin Tagab Meymaneh–Islam Qala (already part of RH)6 Dawlat Abad Islam Qala–Qazi Boi Qala (already part of RH7 Qaramqol Qazi Boi Qala–Qaramqol (already part of RH)8 Andkhuoy Qaramqol–Andkhuoy (already part of RH)9 Khan-e-Charbagh Andkhuoy–Khan-e-Charbagh 13


Nimruz ProvinceNimruz ProvinceNimruz ProvinceNimruz ProvinceNimruz Province1 Char Burjak Char Burjakkz–Zaranj 802 Kang Zaranj–Kard 193 Chakhansur Kard–Chakhansur 114 Khash Rod Chakhansur–Lokhi 95 Nimruz–Farah Chakhansur–Lash Wa Juwayn 81


Sar-e Pol ProvinceSar-e Pol ProvinceSar-e Pol ProvinceSar-e Pol ProvinceSar-e Pol Province1 Sozma Qala Sar-e Pol–Mulla Konda 282 Kohstanat Pasni–Sar-e Pol (already part of proposed North-South Highway 2)3 Sang Charak Tukzar–Mola Kanda (Sozma Qala) 354 Sayyad Hazar Khami–Sar-e Pol 275 Balkhab Tarkzar–Tarkhol 55


Samangan ProvinceSamangan ProvinceSamangan ProvinceSamangan ProvinceSamangan Province1 Khuram Wa Sarbagh Aybak (Zababi)–Tana Chob 302 Ruyi Du Ab Ruyi Du Ab–Aybak (Zababi) 953 Dara-i-Suf Deh–Shabkhki 1104 Dara-i-Suf Aybak–Deh 90


Ghazni ProvinceGhazni ProvinceGhazni ProvinceGhazni ProvinceGhazni Province1 Zana Khan Ghazni–Zana Khan 222 Dih Yak Ghazni–Ramak (Dih Yak) 213 Andar Ghazni–Mirf (Andar 284 Giro Mirf–Pana (Giro) 335 Jaghato Ghazni–Kalan Deh (Jaghato) 306 Bahrami Shahid Ghazni–Jaghato-e-Ghazni 287 Nawor Khwaja–Du Ab 808 Jaghori Qara Bagh–Sang-e Masha (Jaghori) 70



Appendixes 51

Ghazni Province Ghazni Province Ghazni Province Ghazni Province Ghazni Province cont’d.9 Malistan San-e Masha–Malistan 53

10 Ajristan Malistan–Sangar 3511 Nawa Mukur–Nawa 59


Kandahar ProvinceKandahar ProvinceKandahar ProvinceKandahar ProvinceKandahar Province1 Arghistan Khogiani (Arghistan)–Khogiani (Maruf) 752 Shorabak Spin Boldak–Shorawak 1033 Arghistan Kandahar–Khogiani 804 Shah Wali Kot Kandahar–Sayyid Halim 245 Ghorak Baba Wali Sahib (Arghandab)–Ghorak 946 Mayand Ghorek–Kishki Nakhod 607 Daman Kandahar–Shaga 228 Panjwayi Kandahar–Panjwayi 159 Kandahar–Zabol Maruf (Kandahar)–Afghar (Zabul) 13

(interprovince)10 Kandahar–Zabol Spin Boldak through Maruf District–Shamlzayi (Zabol) 180

(interprovince)11 Kandahar–Helmand Argandab–Khakrez–Ghorak–Kajadi 61


Zabol ProvinceZabol ProvinceZabol ProvinceZabol ProvinceZabol Province1 Mizan Qalat–Mizan 432 Shinkai Shinkai–Qalat 703 Shamulzayi Shinkai–Shamalzayi 354 Atghar Shamalzayi–Atghar 405 Arghandab Shahjoi–Siygard 476 Day Chopan Siygard–Bailogh 44


Badghis ProvinceBadghis ProvinceBadghis ProvinceBadghis ProvinceBadghis Province1 Mukur Qal’eh-ye Naw–Deh-i-Babula (already part of RH)2 Ab kamari Qal’eh-ye Naw–Ab-i-Baraki-i-Ghalmani–Daryakashan 453 Qadis Qal’eh-ye Haw–Qadis 374 Jawand Qadis–Char Taq 835 Murghab Gazestan–Bala Murghab 1206 Gormach Balamurghab–Gormach (already part of RH)7 Murghab Murghab Maurichaq 25


Khowst ProvinceKhowst ProvinceKhowst ProvinceKhowst ProvinceKhowst Province1 Gurbuz Khowst (Matun)–Shikh Amir (already part of NH)2 Tani Shikh Amir–Tani 113 Mando-Zayi Dadwal–Tani 94 Nadir Shah Kot Kapari–Dadwal 135 Spera Kapari–Spera 236 Musa Khel Khowst (Matun)–Zur Kot 337 Qalandar Cenday–Khoswt-e Maila 108 Sabiri Khowst (Matun)–Zambar 309 Tere Zayi Khowst (Matun)–Alisher 25

10 Bak Alisher–Bak 1411 Jaji Maydan Bak–Jaji Maydan Total 129Total 129Total 129Total 129Total 129

Farah ProvinceFarah ProvinceFarah ProvinceFarah ProvinceFarah Province1 Lash Wa Juwayn Farah–Lash Wa Juwayn 852 Anar Dara Farah–Anar Dara 47




Sources: ADB estimates and Miinistry of Public Works.

Farah Province Farah Province Farah Province Farah Province Farah Province cont’d.3 Qalai Kah Anar Dara–Qalai Kah 504 Pusht Rod Anar Dara–Naw Deh (Khaki Safed) 505 Pusht Rod Farah–Bala Buluk 286 Bakwa Farah–Sultan-e Bakwa (already part of NH)7 Golistan Sultan-e Bakwa–Qalai Kuhna (already part of NH)8 Pur Chaman Qalai Kuhna (Ijan)–Pur Chaman (65 km part of NH) 40




1 Takhar 274 2742 Badakhshan 727 155 5723 Herat 601 80 5214 Konduz 174 1745 Baghlan 291 155 1366 Ghowr 244 2447 Bamian 24 248 Konar 195 39 1569 Nangahar 237 237

10 Laghman 38 3811 Lowgar 118 82 3612 Kapisa 88 8813 Parvan 222 22214 Vardak 90 9015 Kabul 68 6816 Nurestan 315 31517 Jawzjan 276 27618 Paktia 225 22519 Helmand 395 39520 Balkh 372 37221 Paktika 635 234 40122 Oruzgan 360 36023 Faryab 133 13324 Nimruz 200 81 11925 Sar-e Pol 145 14526 Samangan 325 32527 Ghazni 459 45928 Kandahar 727 254 47329 Zabol 279 27930 Badghis 310 70 24031 Khowst 129 12932 Farah 300 300

Total 8,976 1,150 7,826

Srl No. Province Roads

7-m carriagewaywith 1.5-m one-

layer paved shoul-der on each side

5.5-m carriage-way with 1.0-mgravel shoulder

on each side

Appendix 3B. Summary for Provincial Roads (km)

Sources: Ministry of Public Works and staff estimates.

Appendixes 53

1 Shirkhan Bandar–Pol-e Khomri 138 WB (1382) A 13.5 Contractor: Chinese Rly Corp.2 Pol-e Khomri–Doshi 47 WB —3 Doshi–Salang–Kabul 170 WB (1382) A 60 Wk 2 packages ongoing4 Kabul–Ghazni–Kandahar 483 US/Japan (1382) A 207 Wk 5 packages ongoing5 Kandahar–Spin Boldak 103.5 JFPR/Kuwait (1382) A 256 Haritan–Naibabad 57 ADB (1382) B 13 Consultancy awarded Nov. ‘037 Naibabad–Pol-e Khomri 164 ADB (1382) B 34.5 Consultancy awarded8 Naibabad–Mazar-e-Sharif 26 ADB (1382) B 5.5 Consultancy awarded Nov. ‘039 Mazar-e-Sharif–Andkhuoy 197 ADB (1382) B 37 Consultancy awarded Nov. ‘03

10 Andkhuoy–Herat 550 ADB (1383) D 150 FS consultancy underfinalization by ADB

11 Herat–Delaram 348 US, Japan, and C, D 50 Saudi—$50 million; Japan toSaudi Arabia (1382) decide.

12 Delaram–Zaranj 223 India (1382) C 7013 Herat–Torghandi 119 Government —14 Andkhuoy–Aqina 37 ADB B —15 Herat–Islam Qila 124 Iran (1382) A 5016 Kabul–Jalalabad 142 EU (1382) B 9217 Jalalabad–Torkham 82 Pakistan B —Total Super Corridor 3,010.5 807.5

AAAAA. Super Corridor Segments—4 lanes dual carriageway highway; current commitment covers 2 lanes of 7-mcarriageway and 2-m paved shoulders on either side, with central berge between; 2–12 m covering all stretches

1 Badakshan ProvinceFeyzabad–Taloqan 120 WB (1382) B 16.4 SMEC—detailed engineering

2 Takhar ProvinceTaloqan–Konduz 75 WB (1382) B 8.8 Contract: Chinese Rly Corp.

3 Bamian ProvinceCharikar–Bamian 160 WB (1382) B 21.9 UNOPS—detailed engineering

4 Oruzgan ProvinceKandahar–Tarin Kowt 173 USAID (1383) C 19.03

5 Paktika ProvinceGhazni–Saran 56 USAID (1383) C 3.08Saran–Zurmat 60 USAID (1383) C 3.3

6 Paktiya ProvinceGhazni–Zurmat–Gardeyz 86 USAID (1383) C 4.73

7 Khowst ProvinceKabul–Pol-e Alam 62 USAID (1383) C 3.41Gardeyz–Pol-e Alam 60 USAID (1383) C 3.3

Roads Leading to Mines, Oil and Gas Locations4 Maidan Shahr–Bamian 170 Italy (1382) B 42.6

Total National Highway 1,022 126.55

B. National Highway Segments—2 lanes of 7-m carriageway and 2-m paved shoulders on each side Road Connections to Provincial Headquarters

Appendix 4. Current Commitments for Roads and Highways(1382–1383/2003–2004)

SrlNo. Stretch

ProjectLength

(km) Status

CommittedFunds

($ million) Remarks

SrlNo. Stretch

ProjectLength

(km) Status

CommittedFunds

($ million)

AidProvider

(year) Remarks

AidProvider

(year)


1 Nangarhar ProvinceBasid–Sangar Sarai (Kama) 23 USAID (1383) C 2.07Sangar Sarai–Goshta 19 USAID (1383) C 1.71

2 Nuristan ProvinceKamdesh–Waygal 90 USAID (1383) C 8.1

3 Pakktika ProvinceMata Khan–Sultani (Sar Hawza) 34 USAID (1383) C 3.06Sultani–Urgun 30 USAID (1383) C 2.7Urgun–Sarobi 20 USAID (1383) C 1.8Sarobi–Barmal 40 USAID (1383) C 3.6

4 Zabul ProvinceShinkai–Qalat 70 USAID C 6.3

Total Provincial Roads 326 29.34

Total All Roads 4,358.5 963.39

SrlNo. Stretch

ProjectLength

(km) Status

CommittedFunds

($ million)

AidProvider

(year) Remarks

C. Provincial Roads—Provincial roads have two sets of specifications. In more important locations, it includes2 lines of 7-meter carriageway and 1.5-m, one-layer paved shoulders on each side. In other segments, it is5.5-m carriageway and 1-m gravel shoulders on each side.

Notes: ADB = Asian Development Bank, EU = European Union; JFPR = Japan Fund for Poverty Reduction; UNOPS = UnitedNations Office of Project Services; USAID = United States Agency for International Development; WB = World Bank.Status: A = under construction; B = consultants appointed/design and survey; C = preliminaries in progress; D = committed.Sources: ADB estimates, Ministry of Public Works, and donor sources.

Appendix 4. Current Commitments for Roads and Highways(1382–1383/2003–2004) (cont’d.)

Appendixes 55

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Appendixes 57

Trucks 3 2 5 2 2 2 1 17 Operable 3 2 3 0 2 1 1 12 (71%)Dumpers 15 15 22 12 13 6 4 87 Operable 5 8 15 4 9 4 3 48 (55%)Water Tankers 0 4 0 2 2 3 1 12 Operable 0 2 0 0 2 1 1 6 (50%)Bitumen Tank 0 0 1 0 1 1 0 3 Operable 0 0 1 0 1 0 0 2 (67%)Buses 1 0 2 0 0 1 0 4 Operable 1 0 1 0 0 1 0 3 (75%)Cars 4 1 4 2 0 0 0 11 Operable 4 1 4 1 0 0 0 10 (91%)Bulldozers 3 0 6 6 2 4 2 23 Operable 2 0 4 3 0 2 1 12 (52%)Loaders 4 2 4 3 1 1 1 16 Operable 2 2 2 2 1 1 0 10 (63%)Graders 3 3 3 2 2 1 2 16 Operable 2 2 2 0 1 0 1 8 (50%)Excavators 2 0 0 3 1 1 1 8 Operable 1 0 0 2 1 0 0 4 (50%)Cranes 2 1 2 2 1 1 0 9 Operable 2 0 1 0 0 0 0 3 (33%)Rollers 5 0 4 2 2 1 1 15 Operable 2 0 3 1 1 1 0 8 (53%)Asphalt Mixers 4 0 1 0 6 0 0 11 Operable 2 0 1 0 2 0 0 5 (45%)Asphalt Plant 2 1 1 1 1 0 0 6 Operable 2 0 1 0 1 0 0 4 (67%)Air Compressor 1 2 2 2 0 0 1 8 Operable 0 1 2 0 0 0 1 4 (50%)Welders 2 0 2 1 0 2 0 7 Operable 1 0 1 0 0 1 0 3 (43%)Generators 0 0 0 1 0 0 0 1 Operable 0 0 0 0 0 0 0 0 (0%)Snowplows 0 0 0 2 0 0 0 2 Operable 0 0 0 1 0 0 0 1 (50%)Total 51 31 59 43 34 24 14 256 Operable 29 18 41 14 21 12 8 143 Percent 57 58 69 33 62 50 57 56%

Source: Ministry of Public Works.

Equipment Kabul Kandahar Herat Parvan Nangarhar Baghlan Jowzjan Total

Appendix 7. Construction Equipment Availability at theMinistry of Public Works


Background and Purpose

The transport sector is one of the keys to the futuredevelopment and well-being of Afghanistan. Thecountry’s mountainous features give rise to high

transport costs, leave many communities profoundly iso-lated, and pose a challenge to nation-building. Being land-locked adds to Afghanistan’s vulnerability. An efficienttransport sector will not only reduce costs in comparisonwith the current situation; it is a precondition for strength-ening the unity of the country, and promoting cohesion andthe Afghan identity.

With this Policy Statement, the Transitional IslamicGovernment of Afghanistan (TIGA) wishes to chart acourse for the development of the Afghan transport sectorbased on explicit policy formulations. The Statement rep-resents the first policy document for the transport sectorsince the Bonn Agreement in December 2001, and supple-ments the National Development Framework. It is viewedas an interim policy, as the current administration is transi-tional; it is expected to be restated once the new adminis-tration under the new constitution has come into power.Relevant provisions of the new constitution will be reflectedin the restated Policy Statement for the Transport Sector.The restated Statement will also incorporate relevant rec-ommendations from the Civil Service and PrivatizationCommissions, accepted by the Government. These Com-missions were still working on their recommendations atthe time this Statement was prepared.

The need for this Policy Statement emanates from thecondition that current legislation and institutional arrange-ments in the public sector have, to a large extent, beenshaped during the period of occupation when foreign pow-ers exerted heavy influence on policy matters in Afghani-stan. The transport sector is hence characterized by heavyreliance on public ownership, centralization, and archaicorganizational arrangements in the public sector. Produc-

tion of transport services is often in the hands of the publicsector, and ministries are therefore not only engaged in de-termining policy but also, and more so, in operations andregulation.

The current arrangements do not promote efficiencyand often also make it difficult to effectively address mat-ters of public interest. The evidence may be seen all overthe country: roads are not being maintained, transport ser-vices are of poor quality, the aviation safety system does notmeet international standards, and road traffic safety is poorby any standards. This position is not only a result of thepast conflicts and lack of funds; they also derive frominadequate policies and institutional arrangements.

The purposes of this Statement are• to formulate a long-term vision (10–15 years) for the

overall development of the transport sector (whoserealization assumes peaceful conditions prevailing inthe country); and

• to provide a framework for the identification of keyactions required in the first phase for transforming thetransport sector, encompassing the period up to theend of year 2008/1387.This Statement will serve as a guideline for the work

of ITGA and its successor; it is also expected that donorsactive in the transport sector will take it as a guide toensure that their support achieves maximum developmentimpact, and ultimately the successful reconstruction ofAfghanistan.

The focus of this Statement is on the role and struc-ture of government, the role of the private sector, and theapproach for addressing public interest issues in the trans-port sector.

All modes of transport are covered.

Basic Policy ObjectivesThe basic policy objectives of the Government are to

• promote economic growth;• eradicate acute poverty; and• strengthen national unity.

Appendix 8. Transitional IslamicGovernment of Afghanistan: PolicyStatement for the Transport Sector1

1 Adapted from Afghan Assistance Coordination Authority, Ministry ofTransport, Ministry of Public Works, and Ministry of Civil Aviation andTourism, Transport Sector Review, Draft Final Report, October 2003.

Appendixes 59Appendixes 59

To attain these objectives, resource utilization in thetransport sector must be radically improved. This will haveto be achieved while adequately addressing public interestissues such as• The provision of safe and secure transport services;• The protection of the environment;• The promotion of gender equality, attention to women’s

needs in transport and the participation of women inthe sector;

• The improvement in accessibility to rural and urbanareas; and

• The promotion of competition.

Means to Attain theObjectives

The main functions in the transport sector can be iden-tified as follows:• The supply of transport services, including interme-

diate services such as freight forwarding, clearing, andother agency services;

• The provision and preservation of infrastructure;• The performance of regulatory activities to address

public interest issues; and• The performance of policymaking and overall moni-

toring of sector development.The Government’s view is that allowing competition

and private sector participation will best attain efficiencyin the provision of transport services. Transport servicesare, in general, best produced subject to the minimum ofeconomic regulation with regard to entry, capacity, and pric-ing.

The public sector has a much more central role in theprovision of infrastructure on account of characteristics thatcannot easily be handled by private interests, including highrisks, network effects, and other external effects. However,the Government is cognizant of international experience inarrangements for the planning, provision, and operation ofinfrastructure that may significantly contribute to efficiency.These include• The need for delegation of management to autonomous

organizations within a governance framework provid-ing for effective enforcement of accountability.

•· The importance of ensuring involvement ofthe usersof infrastructure in the governance of the organiza-tions charged with its management. This may also en-tail decentralization of the management of infrastruc-ture.

• The importance of establishing self-financing mecha-nisms for the preservation, and also provision, ofinfrastructure facilities.

• The need to engage contractors by competitive ten-dering procedures for the provision and preservationof infrastructure facilities.This notwithstanding, the Government recognizes that

a market-based approach in the transport sector combinedwith autonomous management and self-financing of infra-structure facilities, while necessary, is not sufficient toensure a well-functioning transport sector. There are a num-ber of public interest issues to be addressed as well, andthese require regulation, which is a domain of the publicsector.

The nature of the regulation required varies. Thus,some issues are not simply a concern of the transport sec-tor, but cut across all sectors of the economy. For example,certain aspects of environmental control relate to activitiesin other sectors as well. And the promotion of competitionis a regulatory activity that applies throughout the economy;it is therefore not considered further here.

Other issues are exclusive concerns of the transportsector, such as safety, security, and the dimensions andenvironmental features of vehicles and aircraft. Regulatoryactivities in these areas essentially comprise the setting andenforcement of—or the provision of incentives to abide by—standards. Regulation is primarily directed towards in-dividuals or companies.

With regard to accessibility and gender, regulation mayinclude standard setting and enforcement, but the issues athand may require a more proactive role by the public sec-tor. Accessibility is related to the provision of transport andinfrastructure services at affordable prices to certain com-munities that would be inadequately served by a purelymarket-based approach. These communities, in addition,often tend to be poor and to live in very remote areas of thecountry or in inaccessible parts of urban areas.

The Government’s role with regard to accessibility isthreefold:• To formulate policies and establish standards with

regard to accessibility;• To identify and establish an institutional framework

that can effectively identify and put in place the meansto implement policies and improve and achieve stan-dards of accessibility; and

• To provide finance to ensure improved accessibility.Regulatory activities with regard to gender normally

cut across all sectors in the economy; for example, mea-sures to promote women’s careers in the public service. Butthere are also some transport sector dimensions to be noted:


• Specific enforcement issues apply to the use by womenof taxis, buses, and other means of transport, to ensureequal treatment of both sexes.

• There is need to identify and develop transport solu-tions that are responsive to the needs of women. Animplication of this is that the organizations chargedwith the management of infrastructure and the provi-sion of solutions for meeting accessibility standardsmust also review needs from a gender perspective. Thismay be achieved by ensuring women’s representationon boards in agencies and/or incorporating appropri-ate instructions in planning and design manuals.Since much regulation is of an operational nature,

efficiency in performing regulatory functions can often beachieved by delegation to autonomous organizations, agen-cies that perform their business within a transparent gov-ernance framework. This applies, e.g., to the performanceof regulatory functions to promote safety and security intransport and infrastructure operations, as well as toimprove the environment. It is desirable that such organi-zations are largely self-financing. It is the Government’s wishto promote the development of agencies of this nature.

Policy formulation, international relations, drafting oflegislation, and sector monitoring are obvious functions forthe public sector, and indeed the main functions to be per-formed by a ministry in the transport sector.

Long-Term Vision for theTransport Sector

In terms of the overall objectives and the means iden-tified to attain these objectives, and based on internationalexperience, the Government has formulated the followingvision for the transport sector:

Transport services

Private operators, subject to competition, will performtransport operations. This will apply to the provision oftaxi, road haulage and bus transport, all intermediate ser-vices and air transport services. Subject to internationalagreements, competition is also expected to rule on inter-national routes, including with respect to air transport, bustransport, and road haulage.

Transport operations will normally be provided with-out public subsidy. However, certain domestic services maybe provided under public service obligations, to ensure thatminimum standards of accessibility in the country or ur-

ban areas are met. Such public service obligations will beprocured by competitive tendering.

Roads

The national road network will have been rehabilitatedand, where required, upgraded. It will be managed by anautonomous road agency, and its preservation and furtherdevelopment financed by road user charges, which are notpart of the consolidated budget. Provincial and/or localroad authorities will manage provincial and local roads, anda substantial part of their costs will also be financed by roaduser charges. A road fund will have been established tocollect road user charges and to serve as procurer of roadservices from the road agency and local roads authorities,and hence to serve as regulator of the road sector. Donorassistance will be directed toward the development of ruralroads required to improve accessibility. Contractors, includ-ing those under long-term contracts for maintenance, willcarry out most works. A substantial amount of work willbe contracted out to small contractors using labor-basedtechniques.

Airports and the Air NavigationSystem

The airports of the country will be managed by a num-ber of airport companies. It is expected that these, with theexception of the airport in Kabul, will essentially have pro-vincial ownership. The airports will be self-financing fortheir operations (but not necessarily for their development).The air navigation system (ANS) will be operated by aseparate corporate self-financing entity. Legislation estab-lishing the airports and ANS corporations will enable thefacilities and services to be privately financed and oper-ated in terms of a concession. A system for economic regu-lation, comprising mainly self-regulatory arrangements,with regard to the airports and ANS will have been estab-lished.

Safety

A new agency for the regulation of safety, security, andenvironmental protection in aviation will have been estab-lished. Similarly, the regulation of road traffic with regardto safety and environmental aspects specific to the road sec-tor will have been entrusted to another agency, also expectedto handle registration of licences and vehicles. Both as con-

Appendixes 61

cerns aviation and road traffic, Afghanistan will regulatesafety and security adequately in terms of internationallyaccepted standards.

Railways and rivers

Investments in river transport facilities and railwayswill be encouraged. River and railway transport develop-ments will essentially be a responsibility of the private sec-tor. The Government may participate in such developmentsprovided that demonstrated economic benefits may bederived therefrom that cannot be captured by privateinvestors, or to improve accessibility to remote regions in acost-effective manner.

Organization of Governmentin Transport

A new ministry will have been established, to replacethe current three ministries in the transport sector, i.e.,Ministry of Transport (MOT), Ministry of Civil Aviationand Tourism (MCAT), and the Ministry of PublicWorks(MPW), and will be charged with policy work for the roadsector, road transport, multimodal transport, air transport,and new modes, such as rail and river transport. This newministry will ultimately also be responsible for road traffic(except enforcement), an area that today falls under theMinistry of Interior (MOI), as well as policy mattersrelated to rural roads, which are today handled by the Min-istry of Rural Rehabilitation and Development (MRRD).The new ministry will additionally have become respon-sible for international relations and for preparing the pub-lic budget in the sector. The ministry will have a staff ofabout 200 persons.

To ensure accountability of the new agencies and cor-porations, an explicit governance regime will have been putin place. The governance regime will encompass objectivesfor these organizations that may be measured, the publica-tion of periodic and annual reports to shed light on theattainment of the objectives, and arrangements to allow forthe involvement of users and other stakeholders. The newministry in the transport sector will normally perform theday-to-day monitoring of these organizations.

Short-Term ConsiderationsThevision formulated above is ambitious; it will be a

challenge to Afghanistan to restructure the transport sec-

tor accordingly, but to ensure the well-being of its citizensattempts must be made. In the short run, it is important toembark on a process of change that will eventually leadtoward the realization of the vision.

In the short term, the Government has decided to takethe following considerations into account:• Privatization of the national carrier, Ariana, is not pos-

sible in the near future, as it is loss-making. Similarly,in the near future, it will not be possible to privatizeMOT road haulage and bus transport operations, asthe country has received and is receiving a substantialnumber of donated vehicles. These operations should,however, be commercialized, as a first step toward laterprivatization.

• In international air transport operations, Ariana willneed to be offered protection for a period of time. Thereare two reasons, viz. the need to ensure internationalconnectivity given that the aviation safety and securitysystem in Afghanistan has not been ICAO-certified,and the potential competition for Afghan routes fromother regssional airlines. Ariana is, however, expectedto be profitable and to serve only routes not expectedto be loss-making in the medium term. Also, the smalldomestic market, in part on account of the inadequatefacilities at present, does not lend itself to open com-petition for the time being, but may provide scope fora regulated system designed to encourage the partici-pation of the private sector. However, air cargo maybe liberalized.

• The country at present does not have an establishedcorps of contractors. While construction works andlarge maintenance contracts may be handled by inter-national contractors, local contractors can for some timeonly be expected to handle part of the maintenanceworks. MPW will need to maintain limited force ac-count capacity for the time being to perform (routine)road maintenance, and also to undertake emergencyrepairs to supplement the capacity of the private sec-tor.

• The current administrative weakness of the provincesimplies that decentralized arrangements for airport androad sector management will have to be delayed forsome time.

• Fundamental restructuring of the ministries is not pos-sible at present. However, partial restructuring underthe Decree on Priority Reform and Restructuring(PRR) within Ministries may be effected. This De-cree allows for departments of ministries to be givenPRR status, so that individuals appointed to key postsin these departments may be offered better conditions


on a time-limited basis and subject to performance.In addition, in the near future, the functions related tovehicle registration and drivers’ licensing should betransferred from MOI to MOT; those relating to air-port airside infrastructure should be transferred fromMPWs to MCAT, and those relating to rural roadsfrom the MRRD to MPW.

Short-Term ActionsBased on the above considerations, a number of short-

term actions —to initiate reform of the transport sector—have been proposed by the Transport Sector Review forimplementation during the period up to the end of 2008/1387; see the Action Plan of the Transport Sector Review.

Capacity BuildingThe Policy Statement places emphasis on the private

sector in rebuilding and developing the transport sector.The Government’s view is that capacity building is a keyboth to trigger this development and to ensure a balancedapproach with adequate attention paid to the public inter-est issues in building the capacity of the public sector. Thechallenge is formidable in view of the shortage of skills andthe fact that the ministries until recently were steeped in aculture inappropriate to future needs. To move forward,the existing ministries will have to be used as a platform toimplement change and reform.

As part of capacity (including institution) building, theGovernment envisages the following steps:• Each ministry will set up a new department to be

charged with capacity building (CBD).2 The CBD isto be given PRR status in terms of the Decree on PRRwithin ministries. The head of the CBD will report tothe deputy minister or the minister.

• Each CBD will be provided with a technical assistanceteam comprising experts in development of the man-agement and administration of a ministry, experts inthe specific functions of the ministry concerned, andexperts in training in the skills to be acquired by theministry concerned. The team leader will report to thehead of the CBD, and on an interim basis to the min-ister/deputy minister.

• The CBD will design new departments correspond-ing to the future needs of the ministry. Once such adepartment has been designed, and key staff membersidentified, an application for PRR status will be made,and the department will then be launched.

• New structures, including the envisaged future air-ports corporations, ANS, and agencies in aviation,roads, and road traffic, will initially also be establishedas a new department, which will be given PRR status.Once this department has been set up, and basic re-cruitment completed, the next step will be preparedby the CBD, leading to the launching of the agency orcorporation, and subsequent closure of the former de-partment in question.

• The CBD will serve as the gender focal point to theGender Advisory Group, and will be expected to imple-ment a gender operational policy.Capacity-building units can be established in the form

of a department within the three transport ministries bythe end of 2003/1382.

The Role of DonorsThe Government expects donors to play a key role in

supporting the reform of the transport sector both in theshort and long run as set out in this Policy Statement.Donors are encouraged to make reference to this PolicyStatement when designing and proposing support activi-ties to the Government. Donors are further encouraged tocoordinate their efforts within the framework of the Con-sultative Group of Transport. It is anticipated that thisGroup will provide a forum for debate on support to thesector, but also serve as a platform for streamlining donors’approach to the planning of support, as well as proceduresfor procurement.

Donors are particularly encouraged to lend their short-term support to the envisaged capacity-building units inthe three ministries, as proposed in this Statement. In themedium term, donors can fruitfully assist with the estab-lishment of new corporations and agencies, including therequired governance framework, and the building ofcapacity to handle procurement and contract supervision,including labor-based works. In the longer term, a mainconcern of donors could be to assist with improving acces-sibility.

2 The CBD is referred to as the Reform and Restructuring Office in otherdocuments of the Transport Sector Review.

Appendixes 63

Purpose

This paper reviews road financing issues, and makesproposals for a policy on road financing in the shortterm. It also outlines a policy for the medium term.

Current Situation inAfghanistan

The current situation in Afghanistan is that road userspay no specific taxes on vehicles, fuel, or spare parts.Until recently and in theory, Afghanistan had a self-financ-ing system for roads. The pedigree was a toll system imple-mented in 1974,2 which generated funds for the centralrevenue fund, but did not contain any elements of earmark-ing. The tolls were collected by way of a system of toll sta-tions scattered throughout the country. From 1999, a newsystem was implemented by way of a new regulation re-placing the previous one.3 The new system continued theprevious toll collection system, but also introduced earmark-ing. The toll revenues were to be spent on construction,reconstruction and maintenance of paved highways as wellas the maintenance of other paved roads. Toll collectionwas organised by the Ministry of Public Works (MPW)and tolls were viewed as a source of revenue for it. Througha decision by the High Council of Ministers on 23 Sep-tember 2002, this road toll system was abolished.4

Additionally, mention should be made that separatecharges are imposed on trucks at present, which are col-lected at “toll” stations. The charge is per ton of the pay-load of trucks as a proxy for the value of the transport con-tract. This charge, which is still being collected, benefitsthe Ministry of Transport, and not the road sector.

Background andAssumptions

Most countries finance the construction and mainte-nance of public roads by way of appropriations from thegovernment’s central revenue fund. Road users pay vari-ous taxes on vehicles, fuel, vehicle usage (generally in theform of weight-distance taxes, but also as tolls), and onspare parts for vehicles. While these taxes are specific (andseparate from ordinary taxes on income, capital, and con-sumption), they are normally not earmarked. They gener-ate income for the central revenue fund of the government.

The policy of imposing taxes on fuel and vehicles usedby road users are based on the following premises:• They ensure an efficient use of roads;• Since they generate revenues for the central revenue

fund, the Government may allocate the revenues forexpenditures in a rational way; and

• The deposit of the revenues into a single central rev-enue fund promotes proper cash management.The second and third arguments have traditionally

been used to oppose the earmarking for the road sector ofthe revenues from taxes on road users. However, there arenowadays many examples to be found around the world ofhow road users pay charges, which generate revenues, whichare not for the benefit of the central revenue fund, but areused directly to finance road works. There are numerousdifferent variants.

There are mainly two reasons for this development.First, some countries have decided to introduce a self-financing system for their roads. In these countries, the roadsector is viewed essentially as a public utility, and a newsystem of governance and control has been introduced simi-lar to that of a utility.5 Second, in many—often developing—countries, the governments have failed to allocateadequate amounts of funds for road maintenance throughthe ordinary budget process resulting in a deterioration ofthe road network. To halt this development, the main fin-anciers of road investments, the international financinginstitutions, have started to promote various schemes for

Appendix 9. Financing the Road Sector1

1 Adapted from Afghan Assistance Coordination Authority, Ministry ofTransport, Ministry of Public Works and Ministry of Civil Aviation andTourism, Transport Sector Review, Draft Final Report, October 2003.

2 Toll Fees for Motor Vehicles, Official Bulletin, No. (238), dated 7October 1974.

3 Regulations for Collecting Toll Fees, Official Bulletin, No. (786), dated13 July, 1999.

4 Decree General No. 43 of September 23, 2002, Special No. 13, (1381H.Q). 5 The two prime examples are New Zealand and Namibia.


ensuring that adequate amounts of funds are being allo-cated for road maintenance. These schemes typicallyinvolve the introduction of road user charges (i.e., ear-marked charges on road users), which are collected andallocated by way of an agency of the state, generally re-ferred to as a road fund. The sponsors of these arrange-ments normally assist with the introduction and enforce-ment of a new system of governance and control to ensurethat there is proper use of funds and cash management.

While Afghanistan at present imposes no taxes on roadusers, it is assumed that the Government will do so as soonas possible, and that the structure and levels of the taxes onfuel and vehicles will conform to internationally establishednorms. The revenues generated by these taxes will be forthe benefit of the central revenue fund, and will be used tofinance government expenditure, including expenditure onroads. The introduction of such taxes will, however, takesome time for reasons explained below.

In the meantime, the Government will have to addressthe problem of how to ensure adequate funding for roadmaintenance in the near term.6 A number of projects forroad rehabilitation will be completed soon, and maintenancewill have to be initiated immediately thereafter. This paperexamines whether road user charges could be an instru-ment for solving this problem, and thus identifies andreviews various options for financing the public road net-work by way of such charges.

The options considered include only charges on usersof roads. In some countries, charges are imposed on thosewho indirectly benefit from a road, e.g., industry or land-owners along a road. Systems based on charging industryare being phased out (e.g., in the Russian Federation) asthey are seen as not promoting economic efficiency andoften inadequately satisfy the “benefit principle,” i.e. thatthose who benefit should pay (see further below). The with-drawal (of part) of the economic rent generated by roads inthe form of increased land values is difficult, and normallyyields only small sums of money.7

OptionsThe available options involving road user charges are,

in principle, the following.

1. Conventional Road User Charges

These are surcharges on fuel, annual charges onvehicles, and sometimes other charges related to vehicleusage. Note that these charges are not taxes, as the rev-enues are channelled back to the road sector, as discussedfurther below. Conventional charges are to be found in quitea number of countries, but only one country, New Zealand,has implemented a full-fledged system based on conven-tional charges.

2. General Tolls

These are toll systems similar to the one in place inAfghanistan until September 2002. Such systems are foundin very few countries.8

3. Private Sector Financing

A concession is awarded to a separate legal entity tobuild and/or operate a road for a period of time. Normally,the entity’s costs are recovered by tolls which it collectsdirectly. This approach is common in Europe, the US, andEast Asia for roads with high levels of traffic, as well as forexpensive infrastructure such as bridges and tunnels.

4. Road Tolls on SpecificBeneficiaries of Road Works

Under this system, for example, tolls are collected onlyon bridges, on new roads, or on rehabilitated/upgradedroads, i.e. on those parts of the network where the roaduser can see a clear benefit from the road works. Note thatthese tolls are collected for the benefit of the Governmentand roads in general, and are not necessarily used to defraythe expenses of the road works concerned. This system isto be found in e.g. Pakistan.

6 The driving force behind the need to review road user charges is the veryhigh cost burden that Afghanistan will be facing once the roads, underpresent reconstruction programs, begin to require maintenance. In thenear future, these costs will amount to $10 million per year, later rising toover $100 million per year. See further the Background Document, Section5.5, and the Annex to the Overview Paper for Roads.

7 One variant of this approach is the road association to be found inScandinavian countries. Local roads are run and financed by the ownersof the properties served by the roads.

8 One example is Lao PDR. Tolls collected at toll stations on the mainhighways of the country are earmarked for road maintenance.

Appendixes 65

5. Road Tolls for Financing SpecificContracts for Road Works

Under this system, toll revenues are used, for example,to finance contracts for maintaining and operating specificparts of the road network. In Afghanistan, such tolls couldbe imposed on roads that have been reconstructed andupgraded, and where the road users could identify the ben-efits of the improvement as well as the maintenance requiredto sustain that improvement.

There are two variants. In one variant, the toll rev-enues from different roads are pooled and used to finance anumber of similar maintenance contracts. In the other, thetoll revenues collected on a specific road are used exclu-sively to finance the contract for that particular road. Thissecond option is very close to Option 3. The main differ-ence is that, for Option 3, the private entity is (normally)expected to bear the traffic risk. In option 5, the state is therisk taker.

The following should be noted:• To implement any of these schemes, legislation will be

required to enable the Government to impose thecharges or tolls or to empower a private entity to col-lect tolls.

• The realization of any of these options would generateadditional funds for financing the road sector, in par-ticular, and the public sector, in general. The incidenceof these options would be on road users and/or on thosewho benefit indirectly from road use.

• With the exception of Option 3 (the private/conces-sion option), a mechanism is required for channelingrevenues back to the road sector, bypassing the ordi-nary appropriation process of the Government. Themechanism should comprise a governance system toensure that the funds are allocated appropriately and acontrol mechanism to ensure that the moneys are notmisused. There are several alternatives. One is simi-lar to the mechanism used until recently in Afghani-stan. The money goes to the road authority, which mayspend it according to a plan/budget approved by par-liament/cabinet. Another alternative is to vest the powerto allocate the funds in a separate entity, i.e. in a roadfund. There are numerous examples of road fundsaround the world, e.g. in Africa, Latin America andAsia (although it should be noted that in reality mostroad funds actually have limited powers as to whatdecisions they can make9). For all options (except 3),

an account separate from the ordinary governmentaccount is required. This account is sometimes referredto as a special deposit account.10

• For all options, a regulatory regime is required for set-ting the level of the road user charges (including tollsand conventional charges).

What Should Road UserCharges Recover?

The basic principle of regulatory regimes for road usercharges is that these are to be set to recover identified costs(seen in a longer perspective), as well as ensuring a reason-able return on invested money in the case of private sectorfinancing (Option 3). The following are the alternatives tobe found in different countries:• Routine maintenance (including operations, i.e. snow

removal, etc.);• Routine and periodic maintenance11;

• All maintenance and capital costs for construction and/or reconstruction, i.e. “full” cost recovery.To determine what is feasible in Afghanistan, indica-

tive data will be used with reference to the national roadnetwork of the country.• The average daily traffic on these roads varies between

300 vehicles and about 3,000 vehicles. Roughly speaking70% are cars, 8% are buses, and 22% are minibuses.

• The average cost of routine maintenance per kilome-ter per year is estimated at between $2,700 (at 300 ve-hicles/day) and $5,000 (at 3,000 vehicles/day). Theaverage cost of routine and periodic maintenance perkilometer per year can be estimated at between $4,500(at 300 vehicles/day) and $14,000 (at 3,000 vehicles/day), and the average cost of the sum of maintenanceand reconstruction cost per kilometer per year can beestimated, in vary rough terms, at as a minimum$20,000.

• Based on the toll rates that were applicable in Afghani-stan until 2002, a traffic flow of 300 vehicles per daywould generate about $800 per kilomter per year, anda flow of 3,000 vehicles about $8,000 per kilometerper year. Conventional wisdom indicates that

the road user charges generating funds for the road fund, subject to thelegal requirements. In New Zealand, the Cabinet must approve anychanges in the road user charges.

10 Many road funds do not operate in terms of a separate account, but relyon transfers from the central government account.

11 Periodic maintenance mainly refers to new overlays, which are periodiccost and required after a period of between 6 and 10 years.

9 The two main exceptions are the Namibian Road Fund Administration(NRFA) and TransFund New Zealand. NRFA can also set the level of


affordable road user charges in a developing countryare on average about 1 US cent per kilometer,12 whichis approximately 35% above the level applied inAfghanistan last year. Assuming that an affordable roaduser charge for Afghanistan would also be about 1 UScent per kilometer, then it can be estimated that a flowof 300 vehicles would generate a maximum $1,100 perkilomter per year and a flow of 3,000 would generate amaximum $11,000 per kilometer per year.These indicative numbers suggest that, for the near

future, it will be possible to recover only maintenance (includ-ing operations) costs via road user charges in Afghanistan. It ispossible that road user charges in the medium term may beused to recover both routine and periodic maintenance costs.Full cost recovery by way of road user charges is not an optionfor Afghanistan for many years to come (with the exception oflimited road sections with high traffic intensity).

Criteria for AssessmentThe following criteria have been used to assess the op-

tions:• Feasibility: can the option actually be implemented in

the near future (say within a 2-year period)? If anoption is deemed not feasible, further assessment interms of the following criteria is not made.

• Efficiency: is economic efficiency improved if theoption is implemented?

• Benefit principle: is there are a clear relationshipbetween those who pay and those who benefit?

• Administrative costs.• The need to preserve the integrity of the system and

minimize the risk of fraud.• Governance: the need to ensure the proper use of the

funds generated by the road user charges, includingthe setting of charges. This dimension is closelyrelated to the mechanism used to channel revenues backto the road sector.

Assessment

Criterion (a)

Options 1 and 3 are deemed not feasible in the shortterm. The main reasons that Option 1 is not feasible are

that it is primarily based on charges on fuel and vehicles.Charges on fuel cannot be considered until taxes onvehicle fuel are being or have been imposed. The efficientadministration of such a system typically is based on anarrangement whereby the taxes, and therefore also the fuelcharges, are collected by oil distributing companies.Charges on vehicles require an effective vehicle register,which does not exist at present.

Since risks are considerable in Afghanistan at present,the private sector option is not deemed to be feasible. Suchsolutions will entail high tolls to recover the risk premium.The feasible options are hence the ones in which the statebears the traffic risks.

The remaining options, 2, 4, and 5, are, on the otherhand, deemed feasible in the short term.13 These involveroad tolls generating revenues for the Government to beused in the road sector.

Criterion (b)

The introduction of any of the three tolling optionswould improve economic efficiency. Since no taxes orcharges are imposed at present, and all vehicle usage givesrise to economic costs (including road wear and damage,congestion, and environmental impact), imposition of taxesand charges on road users is justified from an efficiencypoint of view. Presumably Option 2, which involves tollson a system (or network) of roads, is better than options 4and 5, which involve tolls on selected roads.

Criterion (c)

All the remaining options satisfy the benefit principle, asalready argued. However, from the point of view of roadusers, benefits can only be identified when there is an “obvi-ous” benchmark representing a situation without the roadworks concerned. In Options 4 and 5, tolls are imposed onaccount of an improvement (reconstruction and upgrading)in the road network and/or the provision of maintenance andoperations services, which yield benefits that the road user canidentify. On these grounds, it may be argued that Options 4and 5 better satisfy the benefit principle than Option 2.

Criterion (d)

Administrative costs associated with tolls are gener-ally high, as they require the collection and administration12 Heggie, Ian & Piers Vickers (1998): Commercial Management and

Financing of Roads, World Bank Technical Paper Number 409, TheWorld Bank,. Washington, D.C.

13 The main argument is the previous toll system, which was operational.

Appendixes 67

of cash. There is, in principle, no distinction in this regardbetween Options 2, 4 and 5.

Criterion (e)

The integrity of a tolling system is difficult to ensureunder the present circumstances in Afghanistan. Tollingsystems are also exposed to the risk of fraud because of thehandling of cash. Option 5 is the best system in thisregard, as it allows for the contractor(s) for the road worksto be engaged also in the collection of tolls. Since the con-tractor isbeing paid from the toll revenues (albeit backedup by a government guarantee), he has a vested interest inensuring the integrity of the system.

Criterion (f)

General tolls (Option 2) as well as Option 4 require amechanism for allocating the toll revenues back to roadworks. There is, in addition, a need to ensure that, afterthat allocation has been made, the money is put to properuse. This is demanding, since the present planning, bud-geting, and follow-up systems of MPW operations arepoorly developed.

Option 5 is much simpler in this regard as the moneycollected is tied to the financing of specific contracts. Themain issue to be dealt with is how to set the level of the tollsto ensure that enough money is generated to be able to fi-nance the contracts.14

The outcome of the assessment in terms of the indi-cated criteria is that Option 5 is the preferred one for theshort term. It is recommended that both variants, i.e., thatthe tolls may be linked to one contract (i.e. one road) or toa number of contracts (i.e. a collection of roads), be al-lowed for. The reason is that some roads are faced withspecific demands, e.g., the road through the Salang tunnel,giving rise to the need to set much higher tolls than forother roads.

Assessment for theMedium Term

As a whole, and over a longer-term perspective, sys-tems based on conventional road user charges are viewed

as superior to systems based on tolls. They are better tominimize fraud, and administrative costs are small. Fullydeveloped conventional road user charges are also efficient.And these are also the reasons why most countries that aremoving away from traditional road financing and towardfinancing by way of charging road users, are using suchconventional road user charges.

Therefore, in the medium term, the main option is thefirst one, an option that may be considered once a regimeof vehicle fuel taxation has been imposed and a vehicle reg-ister is in place, including the related management capac-ity. However, as already mentioned, for this option to beconsidered in the medium term, it will be necessary todevelop a robust allocation mechanism and an adequatesystem of control against misuse and fraud.

The finding that conventional road user charges areviewed as a superior option in a medium term also sug-gests (and is a further argument for) why a system of gen-eral road tolls (Option 2) is not a good option in the shortterm. If such a system is introduced, it will eventually be-come more difficult to dismantle it. Option 5, on the otherhand, is easier to phase out, as it is effectively linked to thefinancing of a specific number of contracts. Since thesecontracts would be assumed to be for periods of some 4-6years,15 phasing the tolls out in the medium term will bemore or less automatic.

RecommendationsA system for imposing tolls on vehicles using national

roads that have been upgraded and/or rehabilitated shouldbe introduced in the near future. The toll revenues shouldbe used to finance the contracts for routine maintenance(including operations) of these roads following completionof the upgrading and/or rehabilitation works, and the tollsshould be set to provide for full financing of these con-tracts. The system should allow for a specific contract to befinanced exclusively by the tolls collected on the road con-cerned, as well as cross-subsidization between differentroads that have been upgraded or rehabilitated.

This toll system is viewed as an interim arrangement.In the medium term, it is envisaged that the Governmentwill introduce conventional taxes on fuel and vehicles. TheGovernment may then also consider the possibility of in-troducing conventional road user charges (e.g., sur-

14 A related issue is the relative level of tolls imposed on different types ofvehicles. The toll scale used in the system in operation in Afghanistanuntil 2002 was apparently acceptable to road users, and was also similarto the one used in many other countries.

15 Initial contracts for road maintenance following rehabilitation shouldnot include overlay (i.e., periodic maintenance) works. They should,therefore, not last for more than 4–6 years.


charges on fuel and vehicles) to ensure adequate financingto preserve the road network.

ActionsA complete design of the recommended new system,

including draft legislation, should be prepared. Addition-

ally, a plan for its implementation should be prepared. TheWorld Bank should be approached for the financing of thisdesign and plan, under the Emergency Transport and Re-habilitation Project.

Appendixes 69

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lala

bad,

and

Maz

ar-e

-Sha

rif a

nd 1

5 do

mes

tic/re

-gi

onal

airp

orts

, all d

omes

tic a

nd in

tern

atio

nal a

irpor

tsop

erat

ing

to in

tern

atio

nal s

tand

ards

(IC

AO),

able

toha

ndle

incr

easi

ng n

umbe

r of l

andi

ngs

by fo

reig

n an

ddo

mes

tic c

arrie

rs. A

cqui

sitio

n of

8 w

ide-

bodi

ed a

nd19

sm

alle

r ai

rcra

ft (p

ublic

and

priv

ate)

. Hum

an r

e-so

urce

dev

elop

men

t for

the

civi

l avi

atio

n se

ctor

con

-tin

ued

in a

pla

nned

way

incl

udin

g tra

inin

g, r

ecru

it-m

ent a

nd s

kill

deve

lopm

ent,

and

esta

blis

hmen

t of

train

ing

and

othe

r fac

ilitie

s. D

evel

opm

ent o

f 20

tour

-is

t site

s co

ntin

ued.

1383

–138

5 pr

ogra

ms

cont

inue

d fo

r fur

ther

impr

ove-

men

t of r

oad

trans

port

and

traffi

c.

Ope

ratio

n, m

aint

enan

ce, a

nd im

prov

emen

t of D

is-

patc

h an

d R

ecei

ving

Sta

tions

at

Isla

m Q

ala,

Torg

hund

i, H

aira

tan,

Spi

n Bo

ldak

, and

Tor

kham

to-

geth

er w

ith o

ther

fac

ilitie

s su

ch a

s cu

stom

s co

m-

plex

es, t

ruck

par

king

, and

ded

icat

ed w

areh

ouse

s.C

ontin

ued

capa

city

bui

ldin

g. N

ew f

easi

bilit

y st

udy

for a

nat

iona

l rai

lroad

net

wor

k un

derta

ken.

Sect

or O

bjec

tives

Expe

cted

Res

ults

Expe

cted

Res

ults

Sol

ar Y

ear

1383

1384

1385

1386

1387

1388

1389

Fisc

al Y

ear

2004

2005

2006

2007

2008

2009

2010

Num

ber

12

34

56

7

Subp

rogr

am O

bjec

tives

and

Exp

ecte

d R

esul

ts

App

endi

x 10

. Tra

nspo

rt P

rogr

am O

bjec

tives

Subp

rogr

am 1

: R

oad

Infr

a- s

truc

ture

Subp

rogr

am 3

: R

oad

Tran

spor

t

and

Traf

fic

Subp

rogr

am 2

: C

ivil

Avia

tion

and

Tou

rism

Subp

rogr

am 4

: R

ailw

ays


A.

Supe

r Cor

ridor

1 (tw

o-la

ne3.

226.

50.

750.

00.

00.

01,

742.

51.

742.

52,

323.

490

3.1

expa

nsio

n to

mak

e fo

ur la

nes)

Shi

rkha

n B

anda

r–P

ule

Khu

mri–

Kab

ul–K

anda

har–

Spin

Bol

dak

1,16

2.5

0.75

0.0

0.0

0.0

479.

547

9.5

639.

452

3.1

Nai

baba

d–M

azar

-e-S

harif

–A

ndkh

uoy–

Her

at–D

elar

am-

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nj1,

344.

00.

750.

00.

00.

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008.

01,

008.

01,

344.

00.

0H

erat

–Tor

ghun

di11

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0.0

0.0

0.0

0.0

0.0

119.

0H

erat

–Isl

am Q

ala

124.

00.

750.

00.

00.

093

.093

.012

4.0

0.0

Kab

ul–T

orkh

am22

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0.0

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0.0

0.0

0.0

0.0

224.

0A

ndkh

uoy–

Aqi

na37

.00.

750.

00.

00.

00.

00.

00.

037

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elar

am–K

anda

har

216.

00.

750.

00.

00.

016

2.0

162.

021

6.0

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Ope

ratio

n an

d M

aint

enan

ce (0

.9%

)0.

00.

00.

015

.7

B.

Nat

iona

l Hig

hway

24.

913.

00.

512

2.8

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729

8.0

420.

91,

087.

42,

174.

72,

738.

3Fa

rah

Roa

d–D

elar

am25

3.0

0.5

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12.7

19.0

25.3

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512

6.5

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t-Wes

t H

ighw

ay1,

267.

00.

531

.763

.463

.495

.025

3.4

506.

876

0.2

Nor

th-S

outh

Hig

hway

177

5.0

0.5

19.4

38.8

38.8

58.1

155.

031

0.0

465.

0N

orth

-Sou

th H

ighw

ay 2

776.

00.

519

.438

.838

.858

.215

5.2

310.

446

5.6

Khu

lm–I

shka

shim

478.

00.

512

.023

.935

.947

.811

9.5

239.

023

9.0

Asa

daba

d–G

hazn

i Net

wor

k81

7.0

0.5

20.4

40.9

61.3

81.7

204.

340

8.5

408.

5Ja

bal S

araj

–Nur

esta

n N

etw

ork

172.

00.

54.

38.

612

.917

.243

.086

.086

.0O

ther

add

ition

al r

oads

375.

00.

59.

418

.828

.137

.593

.818

7.5

187.

5O

pera

tion

and

Mai

nten

ance

(1.

4%)

1.7

5.0

9.0

14.7

C.

Prov

inci

al R

oads

38,

968.

00.

314

8.7

297.

344

6.0

594.

61,

486.

64,

484.

04,

484.

0Ta

khar

274.

00.

34.

18.

212

.316

.441

.113

7.0

137.

0B

adak

hsha

n (1

)57

2.0

0.3

8.6

17.2

25.7

34.3

85.8

286.

028

6.0

Bad

akhs

han

(2)

155.

00.

53.

97.

811

.615

.538

.877

.577

.5K

ondu

z17

4.0

0.3

2.6

5.2

7.8

10.4

26.1

87.0

87.0

Bag

hlan

(1)

136.

00.

32.

04.

16.

18.

220

.468

.068

.0B

aghl

an (

2)15

5.0

0.5

3.9

7.8

11.6

15.5

38.8

77.5

77.5

Gho

wr

244.

00.

33.

77.

311

.014

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amia

n24

.00.

30.

40.

71.

11.

43.

612

.012

.0K

onar

(1)

156.

00.

32.

34.

77.

09.

423

.478

.078

.0

Type

of R

oad

2004

–201

0/13

83–1

389

(kilo

met

ers)

2007

–201

0/13

86–1

389

($ m

illio

n)20

06/1

385

($ m

illio

n)20

05/1

384

($ m

illio

n)20

04/1

383

($ m

illio

n)

Estim

ated

Cos

t/km

($ m

illio

n)

Tota

l Cos

t20

04–2

010/

1383

–138

9($

mill

ion)

Kilo

met

ers

2011

–201

3/13

90–1

392

(kilo

met

ers)

App

endi

x 11

A. R

oads

and

Hig

hway

s In

vest

men

t Pro

gram

138

3–13

89/2

004–

2010

Appendixes 71

C.

Prov

inci

al R

oads

con

t’d.

Kon

ar (2

)39

.00.

51.

02.

02.

93.

99.

819

.519

.5N

anga

rhar

237.

00.

33.

67.

110

.714

.235

.611

8.5

118.

5La

ghm

an38

.00.

30.

61.

11.

72.

35.

719

.019

.0Lo

wga

r (1)

36.0

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0.5

1.1

1.6

2.2

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18.0

Low

gar (

2)82

.00.

52.

14.

16.

28.

220

.541

.041

.0K

apis

a88

.00.

31.

32.

64.

05.

313

.244

.044

.0K

abul

68.0

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1.0

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3.1

4.1

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34.0

Par

van

222.

00.

33.

36.

710

.013

.333

.311

1.0

111.

0Va

rdak

90.0

0.3

1.4

2.7

4.1

5.4

13.5

45.0

45.0

Her

at (1

)52

1.0

0.3

7.8

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31.3

78.2

260.

526

0.5

Her

at (2

)80

.00.

52.

04.

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08.

020

.040

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.0N

ures

tan

315.

00.

34.

79.

514

.218

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157.

5Jo

wzj

an27

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013

8.0

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tia22

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511

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man

d39

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5.9

11.9

17.8

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59.3

197.

519

7.5

Bal

kh37

2.0

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5.6

11.2

16.7

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018

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tika

(1)

401.

00.

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012

.018

.024

.160

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200.

5P

aktik

a (2

)23

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011

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410

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ryab

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00.

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04.

06.

08.

020

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imru

z (1

)11

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16.7

55.5

55.5

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ruz

(2)

81.0

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6.1

8.1

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40.5

40.5

Sar

-e P

ol14

5.0

0.3

2.2

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72.5

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anga

n32

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516

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zni

459.

00.

36.

913

.820

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har (

1)47

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r (2)

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0Za

bol

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00.

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28.

412

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5B

adgh

is (1

)24

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0.3

3.6

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10.8

14.4

36.0

120.

012

0.0

Bad

ghis

(2)

70.0

0.5

1.8

3.5

5.3

7.0

17.5

35.0

35.0

Kho

wst

129.

00.

31.

93.

95.

87.

719

.464

.564

.5Fa

rah

300.

00.

34.

59.

013

.518

.045

.015

0.0

150.

0O

pera

tion

and

Mai

nten

ance

(3.4

%)

3.4

10.1

20.1

33.5

Type

of R

oad

2004

–201

0/13

83–1

389

(kilo

met

ers)

2007

–201

0/13

86–1

389

($ m

illio

n)20

06/1

385

($ m

illio

n)20

05/1

384

($ m

illio

n)20

04/1

383

($ m

illio

n)

Estim

ated

Cos

t/km

($ m

illio

n)

Tota

l Cos

t20

04–2

010/

1383

–138

9($

mill

ion)

Kilo

met

ers

2011

–201

3/13

90–1

392

(kilo

met

ers)

App

endi

x 11

A. R

oads

and

Hig

hway

s In

vest

men

t Pro

gram

138

3–13

89/2

004–

2010

(con

t’d.)


D.

Rur

al R

oads

43,

000.

00.

057.

515

.022

.530

.075

.01,

500.

01,

500.

0O

pera

tion

& M

aint

enan

ce (1

.9%

)0.

10.

40.

81.

4

E.O

pera

tion

& M

aint

enan

ce C

ost o

f0.

05.

215

.530

.065

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oads

Reh

abili

tate

d/U

pgra

ded

F.Te

chni

cal A

ssis

tanc

e (1

%)

2.8

5.6

7.8

28.2

70.0

G.C

apac

ity B

uild

ing5

10.0

10.0

10.0

40.0

70.0

H.To

tal R

oads

and

Hig

hway

s20

,107

.529

1.8

578.

879

9.8

2,88

6.2

4,57

1.4

10,4

82.1

9.62

5.4

I.To

tal O

pera

tion

and

Mai

nten

ance

20,1

07.5

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56.8

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103.

6

Sup

er C

orrid

or3,

226.

521

.821

.821

.821

.837

.5N

atio

nal H

ighw

ay4,

913.

020

.220

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.223

.726

.0P

rovi

ncia

l Roa

ds8,

968.

08.

411

.317

.125

.737

.3R

ural

Roa

ds3,

000.

02.

82.

82.

82.

82.

8

Pave

d R

oads

per

cap

ita (k

m)

0.00

0145

338

0.00

0171

00.

0002

030

0.00

0228

80.

0002

327

Pave

d R

oads

per

1,0

00 p

eopl

e (k

m)

0.14

5337

838

0.17

1020

830.

2029

6839

0.22

8842

670.

2327

0513

Type

of R

oad

2004

–201

0/13

83–1

389

(kilo

met

ers)

2007

–201

0/13

86–1

389

($ m

illio

n)20

06/1

385

($ m

illio

n)20

05/1

384

($ m

illio

n)20

04/1

383

($ m

illio

n)

Estim

ated

Cos

t/km

($ m

illio

n)

Tota

l Cos

t20

04–2

010/

1383

–138

9($

mill

ion)

Kilo

met

ers

2011

–201

3/13

90–1

392

(kilo

met

ers)

App

endi

x 11

A. R

oads

and

Hig

hway

s In

vest

men

t Pro

gram

138

3–13

89/2

004–

2010

(con

t’d.)

Sou

rces

:Tra

nspo

rt Se

ctor

Rev

iew

, 200

3, a

nd s

taff

estim

ates

.

Not

es: 1 S

uper

Cor

ridor

seg

tmen

ts a

re 4

lane

s du

al c

arria

gew

ay w

ith 2

-met

er p

aved

sho

ulde

rs o

n ea

ch s

ide,

with

cen

tral b

erge

of 2

–12

met

ers

cove

ring

all s

tretc

hes.

2Tw

o la

nes

of 7

-met

er c

arria

gew

ay a

nd 2

-met

er p

aved

sho

ulde

rs o

n ea

ch s

ide.

3P

rovi

ncia

l roa

ds h

ave

two

spec

ifica

tions

. For

Typ

e 1

segm

ents

, it i

s 5.

5-m

eter

car

riage

way

and

1-m

eter

gra

vel s

houl

der o

n ea

ch s

ide.

In m

ore

impo

rtant

seg

men

ts d

esig

nate

d Ty

pe2,

it is

2 la

nes

of 7

-met

er c

arria

gew

ay a

nd 1

.5-m

eter

one

-laye

r pav

ed s

houl

der o

n ea

ach

side

.4

Five

-met

er e

arth

en ro

ad w

ith 1

-met

er s

houl

der o

n ea

ch s

ide.

5C

apac

ity b

uild

ing

rela

tes

to s

trate

gies

, pl

anni

ng,

stud

ies,

mai

nten

ance

, de

velo

pmen

t an

d im

plem

enta

tion

of p

olic

y an

d re

gula

tory

fra

mew

ork,

and

adm

inis

tratio

n. A

ll co

sts

are

attri

buta

ble

to p

ublic

sec

tor e

xcep

t a s

mal

l am

ount

of c

omm

uniti

es’ s

hare

of r

ural

road

mai

nten

ance

cos

t.

Appendixes 73

Paved 6,763 Super Corridor 0.9Gravel 4,113 National Highway 1.4Earth 937 Provincial Roads 2.3Average 2,908 Rural Roads 1.9

Surface Type Annual Road type O&M (%)

Appendix 11B. Roads and Highways InvestmentProgram 1383–1389/2004–2010

Average Maintenance Cost

Source: Transport Sector Review, 2003.

Armenia 520 3.98 3.83 0.531Azerbaijan 600 3.12 2.88 0.287Bangladesh 370 1.58 0.15 1.441Cameroon 580 2.29 0.28 0.072Congo Republic 570 4.27 0.41 0.037Cote d’Ivoire 600 3.15 0.31 0.157Guinea 450 4.36 0.72 0.124Haiti 510 0.52 0.13 0.149India 450 3.27 1.49 1.010Indonesia 570 1.63 0.76 0.180Nepal 240 0.575 0.18 0.090Pakistan 440 1.84 0.79 0.320Senegal 490 1.50 0.43 0/074Sri Lanka 850 5.09 5.83 1.465Zimbabwe 460 1.40 0.67 0.047

Afghanistan 2003 186 0.96 0.15 0.032 2010 425 0.96 0.23 0.032 2015 598 — 0.46 —

Kilometers ofPaved Road

per 1,000People (2000)

Kilometers ofPaved Roadper Square

Kilometer ofArea (2000)

Kilometers ofTotal Roadper 1,000

People (2000)GNP per

Capita (2000)Country

Note: GNP = gross national product; — = not available.Sources: World Bank, World Tables, 2002, and staff estimates.

Appendix 11C. Roads and Highways Investment Program1383–1389/2004–2010

International Comparison: Road Density in Countrieswith Similar Per Capita GNP


A. Airports (Upgrade 3 international airports at 350.0 17.5 35.0 105.0 192.5 20at Herat, Mazar-e-Sharif, and Kabul,upgrade 16 domestic/regional airports*– Runway 105.0 5.3 10.5 31.5 57.8– Terminal and Required facilities 70.0 3.5 7.0 21.0 38.5– Approach Road 35.0 1.8 3.5 10.5 19.3– Air Traffic Control/Management System 52.5 2.6 5.3 15.8 28.9– Aviation Safety 17.5 0.9 1.8 5.3 9.6– Vehicles and Equipment 70.0 3.5 7.0 21.0 38.5– Air Traffic Management System 20.0 1.0 2.0 6.0 11.0– Operation and Maintenance (15%) 91.6 2.8 7.3 25.0 55.5Total 461.6 21.3 45.3 136.0 259.0

B. Air Transport** 350.0 15.0 35.0 45.0 255.0 40– Aircraft (10 wide-bodied for international and 30 smaller craft for regional routes, passengers, and cargo)– Hangars and Parking Bays 70.0 3.5 7.0 21.0 38.5– Operation and Maintenance (15%) 93.8 2.8 9.1 19.0 63.0Total 513.8 21.3 51.1 85.0 356.5

C. Mainpower (Civil Aviation)**– Training, Recruitment and Skill Development 100.0 5.0 10.0 30.0 55.0– Training and Other Facilities 100.0 5.0 10.0 30.0 55.0– Operation and Maintenance 49.5 1.5 4.5 13.5 30.0Total 249.5 11.5 24.5 73.5 140.0Total Civil Aviation 870.0 41.0 87.0 201.0 541.0

D. Tourism**– Site Identification and Development 70.0 7.0 10.5 14.0 38.5 20– Hotels, Motels, Guesthouses 40.0 4.0 6.0 8.0 22.0 50– Restaurants 5.0 0.5 0.8 1.0 2.8 25– Entertainment 5.0 0.5 0.8 1.0 2.8– Transport and Communication 40.0 4.0 6.0 8.0 22.0– Promotion 15.0 1.5 2.3 3.0 8.3– Training 5.0 0.5 0.8 1.0 2.8– Operation and Maintenance (15%) 24.0 2.4 3.6 4.8 13.2Total 175.0 17.5 26.3 35.0 96.3

E. Planning, Capacity Building, Development, 28.0 4.0 4.0 4.0 16.0and Implementation of Policy and Regula-tory Framework and Administration*

F. Technical Assistance (1%) 14.3 0.8 1.5 3.3 8.7

Total Civil Aviation and Tourism 1,442.2 76.3 152.7 336.8 876.4

* Public Sector 889.3 47.5 93.1 229.2 519.5** Private Sector 552.9 28.8 59.6 107.6 356.9

Project/Activity2007–2010/1386–1389

2006/1385

2005/1384

2004/1383

EstimatedCost

($ milliion) Quantity

Appendix 12A. Civil Aviation and Tourism Investment Program1383–1389/2004–2010

Source: Ministry of Civil Aviation and Tourism.

Appendixes 75

International 4Kabul 100.0 5.0 10.0 30.0 55.0Herat 50.0 2.5 5.0 15.0 27.5Mazar-e-Sharif 50.0 2.5 5.0 15.0 27.5Jalalabad 50.0 2.5 5.0 15.0 27.5Lowgar 0.0 0.0 0.0 0.0 0.0 1,000

Domestic 15Konduz 10.0 0.5 1.0 3.0 5.5Feyzabad 10.0 0.5 1.0 3.0 5.5Bamian 5.0 0.25 0.5 1.5 2.75Chaghcharan 5.0 0.25 0.5 1.5 2.75Yakawlang 5.0 0.25 0.5 1.5 2.75Sheberghan 5.0 0.25 0.5 1.5 2.75Mehmaneh 5.0 0.25 0.5 1.5 2.75Taloqan 5.0 0.25 0.5 1.5 2.75Gardeyz 5.0 0.25 0.5 1.5 2.75Khowst 5.0 0.25 0.5 1.5 2.75Zaranj 5.0 0.25 0.5 1.5 2.75Bost 5.0 0.25 0.5 1.5 2.75Badakhshan 5.0 0.25 0.5 1.5 2.75Qal’eh-ye Now 5.0 0.25 0.5 1.5 2.75Khwahan 5.0 0.25 0.5 1.5 2.75

Total 350.0 17.5 35.0 105.0 192.5 1,000

FundsRequired($ million)

2011–2015/1390–1394

Commitment ($ million)

2007–2010/1386–1389

2006/1385

2005/1384

2004/1383

Location andType of Airport


Appendix 12B. Civil Aviation and Tourism Investment Program1383–1389/2004–2010

Commitment for Individual Airport Upgrades


Taxi

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age

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($)

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cles

2003

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0($

mill

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vest

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gram

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1M

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as

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riod.

8K

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ket.

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clud

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hops

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Pro

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Sour

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inis

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ansp

ort

with

AD

B e

stim

ates

.

Not

es:

Appendixes 77

Depots/Terminals Kabul 4 10,000,000 40.0 4.0 6.0 8.0 22.0 Four Major Cities 8 500,000 4.0 0.4 0.6 0.8 2.2 Interprovince 32 200,000 6.4 0.6 1.0 1.3 3.5

Parking Facilities 35 200,000 7.0 0.7 1.1 1.4 3.9

Stands/Stops Kabul 100 10,000 1.0 0.1 0.2 0.2 0.6 Four Major Cities 80 5,000 0.4 0.0 0.1 0.1 0.2

Workshops (3% of incrementalinvestment in vehicles) 273.6 27.4 41.0 54.7 150.5

Transporters’ Highway Facilities 30 1,000,000 30.0 3.0 4.5 6.0 16.5

Road Traffic Management System Kabul 40 50,000 2.0 0.2 0.3 0.4 1.1 Four Major Cities 40 50,000 4.0 0.4 0.6 0.8 2.2

Vehicle Support Services atBorder Crossiings 8 20,000,000 160.0 16.0 24.0 32.0 88.0

Operation and Maintenance (15%) 15% 142.7 7.9 19.8 35.7 79.3

Total 671.1 60.8 99.1 141.3 369.9


Service Type

2006/138520% oftotal,

$ million)

2005/1384(15% of

total,$ million)

EstimatedTotal Cost2003–2010($ million)

Unit Cost($)

2007–2010/1386–1389

(55% oftotal,

$ million)

2004/1383(10% of

total,$ million)Quantity

Vehicle Fleet Support Service Cost

Appendix 13B. Road Transport and Traffic Investment Program1383–1389/2004–2010


D. Strategies, Planning, Studies, Capacity Building, Development, Implementation ofPolicy and Regulatory Framework and Administration, and Technical Assistance

Strategies, Planning 10.0 1.0 1.5 2.0 5.5Special Studies 8.0 0.8 1.2 1.6 4.4Capacity Building 10.0 1.0 1.5 2.0 5.5Development and Implementation of Policy and Regulatory Framework 5.0 0.5 0.8 1.0 2.8Administration 20.0 2.0 3.0 4.0 11.0Operation and Maintenance (15%) 14.3 0.8 2.0 3.6 8.0Technical Assistance (.1%) 7.6 6.1 9.9 14.2 37.1

Source: Staff Estimates.

Activity

1385/200620% oftotal)

1384/2005(15% oftotal)


1386–1389/2007–2010

(55% oftotal)

1383/2004(10% of

total)


Activity

2006/138520% oftotal)

2005/1384(15% oftotal)


2007–2010/1386–1389

(55% oftotal)

2004/1383(10% of

total)

E. Total Road Transport and Traffic

A. Vehicle Fleet Cost 6,840.0 619.4 1,009.9 1,449.7 3,770..1B. Vehicle Fleet Support Service Cost 671.0 60.8 99.1 141.3 369.9C. Vehicle Fleet Registration 28.5 2.9 4.3 5.7 15.7D. Strategies, Planning, Studies, and Others 67.3 6.1 9.9 14.2 37.1E. Technical Assistance 7.6 0.7 1.1 1.6 4.2

TOTAL 7,614.6 689.8 1.124.3 1,603.6 4.197.0

Public 416.1 40.9 62.2 84.0 228.9Private 7,198.50 648.88 1,062.03 1,519.54 3,968.04

Registration 32 500,000 16.0 1.6 2.4 3.2 8.8Drivers’ Licensing 32 50,000 1.6 0.2 0.2 0.3 0.9Inspection 320 5,000 1.6 0.2 0.2 0.3 0.9Weighing Stations 30 20,000 0.6 0.1 0.1 0.1 0.3Transport Management 5.0 0.5 0.8 1.0 2.8Operation and Maintenance (15%) 15% 3.7 0.4 0.6 0.7 2.0Total 28.5 2.9 4.3 5.7 15.7


C. Vehicle Fleet Registration

Appendix 13. Road Transport and Traffic Investment Program2004–2010/1383–1389

Activity

2006/138520% oftotal)

2005/1384(15% of

total)


Unit Cost($)

2007–2010/1386–1389

(55% oftotal)

2004/1383(10% of

total)Quantity

Appendixes 79

Armenia 520 5.0 —Azerbaijan 600 49.0 —Bangladesh 370 1.0 —Cameroon 580 10.0 —Congo Republic 570 18.0 —Cote d’Ivoire 600 23.0 —Guinea 450 4.0 —India 450 8.0 —Indonesia 570 25.0 —Pakistan 440 8.00 —Senegal 490 11.0 —Sri Lanka 850 34.0 —

Afghanistan 2003 186 13.7 0.059 2010 (est.) 425 26.7 0.151 2015 (est.) 598 40.0 0.300

GNP PerCapita

2000 ($)

Buses Per1,000

People2000

MotorVehiclesPer 1,000

People2000Country

Note: — = not available; GNP = gross national product.Source: World Bank, World Tables 2002, and staff estimates.

F. International Comparison: Motor VehiclesPer Capita in Countries

with Similar Per Capita GNP

Appendix 13. Road Transport andTraffic Investment Program

1383–1389/2004–2010

Truck Fleet 75 15.0Millie Bus 963 66.5Technical and Maintenance 6 3.0 WorkshopsTrolley Bus System 300 150.0 (buses and network)Transport Terminals in Kabul 4 40.0Administrative Buildings 22 4.4Total 278.9

Item QuantityCost ($

millions)

Source: Ministry of Transport.

G. Proposed Investments byMinistry of Transport


No. of DRS to be Constructed 2 2 1 0 51. Islam Qila 20 202. Torghundi 20 203. Hairatan 20 204. Spin Boldak 20 205. Torkham 20 20

Total 40 40 20 0 100

Technical Assistance 1 1 1 3 6Capacity Building 2 3 4 6 15Operations and Maintenance 2 4 5 5 16

Total Railways 45 48 30 14 137

Station

Total Cost2004–2010/1383–1389

2007–2010/1386–1389

2006/1385

2005/1384

2004/1383

Appendix 14. Railways: Dispatch and Receiving StationsInvestment Program 1383–1389/2004–2010 ($ million)

Notes: Total cost to be taken for each of the five locations @ $20 million to include (i) DRS, (ii) Customs complex, (iii)truck parking, and (iv) dedicated warehouse as per assessment of ADB Staff. Only infrastructure costs are taken intoaccount; costs for railway lines, etc. not considered. DRS = Dispatch and Receiving Stations.Source: Staff estimates.

Appendixes 81

App

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x 15

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nspo

rt S

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ear I

nves

tmen

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gram

in B

udge

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mat

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burs

emen

t)13

8120

02–

03

1394

2015 12

1393

2014 11

1392

2013 10

1391

2012 9

1390

2011 8

1389

2010 7

1388

2009 6

1387

2008 5

1386

2007 4

1385

2006 3

1384

2005 2

1383

2004 1

1382

2003

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r Yea

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47.2

5Jo

wzj

an4.

148.

2812

.42

16.5

641

.40

Pak

tia6.

0212

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18.0

524

.06

33.7

5H

elm

and

5.93

11.8

517

.78

23.7

059

.25

Bal

kh5.

5811

.16

16.7

422

.32

55.8

0P

aktik

a (1

)6.

0212

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524

.06

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aktik

a (2

)5.

8511

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17.5

523

.40

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0O

ruzg

an5.

4010

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16.2

021

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0Fa

ryab

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imru

z (1

)1.

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006.

6616

.65

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ruz

(2)

2.03

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ar-e

Pol

2.18

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man

gan

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319

.50

48.7

5G

hazn

i6.

8913

.77

20.6

627

.54

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5K

anda

har

(1)

7.10

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921

.29

28.3

870

.95

Kan

daha

r (2

)6.

3512

.70

19.0

525

.40

63.5

0Za

bol

4.19

8.37

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616

.74

41.8

5B

adgh

is (

1)3.

607.

2010

.80

14.4

036

.00

Bad

ghis

(2)

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0K

how

st1.

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875.

817.

7419

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Fara

h4.

509.

0013

.50

18.0

045

.00

Rur

al R

oads

7.50

15.0

022

.50

30.0

075

.00

Cap

acity

Bui

ldin

g10

.00

10.0

010

.00

40.0

0

Appendixes 83

App

endi

x 15

. Tra

nspo

rt S

ecto

r Sev

en-Y

ear I

nves

tmen

t Pro

gram

in B

udge

t For

mat

(Dis

burs

emen

t)(c

ont’d

.)13

8120

02–

03

1394

2015 12

1393

2014 11

1392

2013 10

1391

2012 9

1390

2011 8

1389

2010 7

1389

2009 6

1387

2008

\5

1386

2007 4

1385

2006 3

1384

2005 2

1383

2004 1

1382

2003

Sola

r Yea

rFi

scal

Yea

rN

umbe

r

Not

e: IC

AO =

Inte

rnat

iona

l Civ

il A

viat

ion

Org

anis

atio

n.So

urce

: Sta

ff es

timat

es.

Civ

il Av

iatio

n an

d To

uris

m41

.25

76.4

018

5.20

413.

15C

ivil A

viat

ion

27.0

555

.60

148.

8032

4.55

Airp

ort

18.5

037

.00

111.

0020

3.50

Air

Tran

spor

t5.

5512

.60

19.8

088

.05

Trai

ning

and

Oth

er F

acili

ties

3.00

6.00

18.0

033

.00

Tour

ism

6.40

9.60

12.8

035

.20

Cap

acity

Bui

ldin

g7.

8011

.20

23.6

053

.40

Roa

d Tr

ansp

ort a

nd T

raffi

c36

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974

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204.

11Ve

hicl

e Fl

eet,

Sup

port

Ser

vice

s, a

nd R

egul

atio

n30

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45.5

560

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167.

01C

apac

ity B

uild

ing

6.10

9.94

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837

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Rai

lway

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.00

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024

.00

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patc

hing

and

Rec

eivi

ng S

tatio

ns40

.00

40.0

020

.00

0.00

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acity

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ldin

g2.

003.

004.

006.

00

Tech

nica

l Ass

ista

nce

5.23

9.27

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644

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Roa

ds a

nd H

ighw

ays

2.79

5.63

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ivil A

viat

ion

0.76

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d Tr

ansp

ort a

nd T

raffi

c0.

691.

121.

604.

19R

ailw

ays

1.00

1.00

1.00

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Ope

ratio

ns a

nd M

aint

enan

ceR

ecur

rent

Cos

ts ($

mill

ion)

64.4

581

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0419

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59R

oads

and

Hig

hway

s53

.24

56.7

863

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010

3.6

Civ

il Avi

atio

n5.

4715

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997

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raffi

c3.

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5020

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lway

s2.

004.

005.

005.

00

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ntia

l Cos

t Rec

over

y ($

per

XXX)

Uni

t Cos

tP

oten

tial U

ser F

ee (b

ased

on

inte

rnat

iona

l exp

erie

nce)


Roa

ds a

nd H

ighw

ays

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010.

0063

0.38

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180.

002,

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300.

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uper

Cor

ridor

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0.00

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Nat

iona

l Hig

hway

s12

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0.00

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650.

0029

8.03

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001,

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350.

001,

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rovi

ncia

l Roa

ds14

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0044

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640.

001,

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ural

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ds7.

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00.

0030

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00.

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acity

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ldin

g10

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00.

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chni

cal A

ssis

tanc

e2.

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005.

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007.

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0028

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0.00

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0044

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Ope

ratio

n an

d M

aint

enan

ce53

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0.00

56.7

80.

0063

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0.00

74.1

00.

0024

7.97

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97

Civ

il Av

iatio

n an

d To

uris

m41

.07

22.1

383

.50

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121

6.42

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648

4.31

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5.30

485.

881,

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18A

irpor

ts18

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0.00

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00.

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500.

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00A

ir Tr

ansp

ort

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12.9

512

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pow

er3.

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033

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010

0.00

Cap

acity

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ldin

g7.

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2011

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028

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chni

cal A

ssis

tanc

e0.

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003.

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0.00

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8O

pera

tion

and

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nten

ance

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d Tr

ansp

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raffi

c40

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cle

Flee

t, S

uppo

rt S

er-

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756

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584

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vic

es, a

nd R

egul

atio

nC

apac

ity B

uild

ing

6.10

0.00

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0.00

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80.

0037

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0.00

67.3

10.

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Tech

nica

l Ass

ista

nce

0.69

0.00

1.12

0.00

1.60

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0.00

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Ope

ratio

n an

d M

aint

enan

ce3.

750.

005.

630.

007.

500.

0020

.63

0.00

37.5

00.

0037

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lway

s45

.00

0.00

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00.

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0.00

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00.

0013

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0.00

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00D

ispa

tchi

ng a

nd40

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00.

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000.

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ecei

ving

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tions

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acity

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ldin

g2.

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tion

and

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nten

ance

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00.

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l47

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253,

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ital E

xpen

ditu

re40

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ratio

n an

d M

aint

enan

ce64

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560.

37

Subp

rogr

am/P

roje

ct

Subp

rogr

am/P

roje

ctPu

blic20

05/1

384

2007

–200

10/

1386

–138

920

06/1

3520

04/1

383

Publ

icPu

blic

Publ

icPr

ivat

ePr

ivat

ePr

ivat

ePr

ivat

e

App

endi

x 16

. Tra

nspo

rt S

ecto

r Inv

estm

ent P

rogr

am 1

383–

1389

/200

4–20

10

Sour

ce: S

taff

estim

ates

.

Priv

ate

Tota

l Cos

t($

mill

ion)

Tota

l Cos

t20

07–2

010/

1383

–138

9

Publ

ic

Appendixes 85

App

endi

x 17

. Tra

nspo

rt S

ecto

r Sev

en-Y

ear I

nves

tmen

t Pro

gram

in B

udge

t For

mat

(Com

mitm

ent)

1381

2002

–03

1394

2015 12

1393

2014 11

1392

2013 10

1391

2012 9

1390

2011 8

1389

2010 7

1388

2009 6

1387

2008 5

1386

2007 4

1385

2006 3

1384

2005 2

1383

2004 1

1382

2003

Sola

r Yea

rFi

scal

Yea

rN

umbe

r

Targ

et fo

r Ser

vice

Del

iver

y

Sub

prog

ram

1: R

oad

Infra

stru

ctur

eP

aved

Roa

ds (k

m p

er 1

,000

)0.

150.

230.

46S

ubpr

ogra

m 2

: Civ

il Av

iatio

nN

o. o

f airp

orts

func

tioni

ng a

s pe

r IC

AO

sta

ndar

d0

2030

Inte

rnat

iona

l0

45

No.

of t

ouris

t site

s op

ened

020

30S

ubpr

ogra

m 3

: Roa

d Tr

ansp

ort a

nd T

raffi

cM

otor

veh

icle

s pe

r 1,0

00 p

eopl

e13

.71

26.7

140

.00

No.

of M

ilie b

uses

per

1,0

00 u

rban

pop

ulat

ion

0.05

90.

151

0.30

0S

ubpr

ogra

m 4

: Rai

lway

sC

onst

ruct

ion

of D

ispa

tchi

ng a

nd R

ecei

ving

Sta

tions

05

Inve

stm

ent P

rogr

am ($

mill

ion)

934.

7242

9.13

1,13

9.66

3,69

2.73

4,87

3.03

Cap

ital E

xpen

ditu

res

(dis

burs

emen

t)87

0.27

347.

541.

022.

613,

495.

334,

873.

03R

oads

and

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hway

s60

1.31

255.

6577

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8.02

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er C

orrid

ors

0.00

0.00

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903.

13S

her K

han

Ban

dar–

Pol

-e K

hom

ri-47

9.53

392.

34 K

abul

–Kan

daha

r–Sp

in B

olda

kN

aiba

bad–

Maz

ar-e

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rif–A

ndkh

uoy–

1,00

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0.00

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erat

–Del

aram

–Zar

anj

Her

at–T

orgh

undi

0.00

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5H

erat

–Isl

am Q

ala

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00.

00K

abul

–Tor

kham

0.00

168.

00A

ndkh

uoy–

Aqi

na0.

0027

.75

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aram

–Kan

daha

r16

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iona

l Hig

hway

s12

2.83

245.

6529

8.03

420.

851,

369.

15Fa

rah

Roa

d–D

elar

am6.

3312

.65

18.9

863

.25

25.3

0E

ast-W

est H

ighw

ay31

.68

63.3

563

.35

95.0

338

0.10

Nor

th-S

outh

Hig

hway

119

.38

38.7

538

.75

58.1

323

2.50

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th-S

outh

Hig

hway

219

.40

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038

.80

58.2

023

2.80

Khu

lm–E

shka

shem

11.9

523

.90

35.8

547

.80

119.

50A

sada

bad–

Gha

zni n

etw

ork

20.4

340

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bal S

araj

–Nur

esta

n ne

twor

k4.

308.

6012

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er A

dditi

onal

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ds9.

3818

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337

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5

Pro

vinc

ial R

oads

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9844

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641,

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khar

12.3

312

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Bad

akhs

han

(1)

25.7

425

.74

34.3

285

.80

Bad

akhs

han

(2)

11.6

311

.63

15.5

038

.75


App

endi

x 17

. Tra

nspo

rt S

ecto

r Sev

en-Y

ear I

nves

tmen

t Pro

gram

in B

udge

t For

mat

(Com

mitm

ent)

(con

t’d.)

Kon

duz

7.83

7.83

10.4

426

.10

Bag

hlan

(1)

6.12

6.12

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0B

aghl

an (2

)11

.63

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315

.50

38.7

5G

how

r10

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814

.64

36.6

0B

amia

n1.

081.

081.

443.

60K

onar

(1)

7.02

7.02

9.36

23.4

0K

onar

(2)

2.93

2.93

3.90

9.75

Nan

garh

ar10

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714

.22

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5La

ghm

an1.

711.

712.

285.

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wga

r (1)

1.62

1.62

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5.40

Low

gar (

2)6.

156.

158.

2020

.50

Kap

isa

3.96

3.96

5.28

13.2

0K

abul

3.06

3.06

4.08

10.2

0P

arva

n9.

999.

9913

.32

33.3

0Va

rdak

4.05

4.05

5.40

13.5

0H

erat

(1)

23.4

523

.45

31.2

678

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Her

at (2

)6.

006.

008.

0020

.00

Nur

ista

n14

.18

14.1

818

.90

47.2

5Jo

wzj

an12

.42

12.4

216

.56

41.4

0P

aktia

18.0

518

.05

24.0

633

.75

Hel

man

d17

.78

17.7

823

.70

59.2

5B

alkh

16.7

416

.74

22.3

255

.80

Pak

tika

(1)

18.0

518

.05

24.0

660

.15

Pak

tika

(2)

17.5

517

.55

23.4

058

.50

Oru

zgan

16.2

016

.20

21.6

054

.00

Fary

ab5.

995.

997.

9819

.95

Nim

ruz

(1)

5.00

5.00

6.66

16.6

5N

imru

z (2

)6.

086.

088.

1020

.25

Sar

-e P

ol6.

536.

538.

7021

.75

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anga

n14

.63

14.6

319

.50

48.7

5G

hazn

i20

.66

20.6

627

.54

68.8

5K

anda

har (

1)21

.29

21.2

928

.38

70.9

5K

anda

har (

2)19

.05

19.0

525

.40

63.5

0Za

bol

12.5

612

.56

16.7

441

.85

Bad

ghis

(1)

10.8

010

.80

14.4

036

.00

Bad

ghis

(2)

5.25

5.25

7.00

17.5

0K

how

st5.

815.

817.

7419

.35

Fara

h13

.50

13.5

018

.00

45.0

0

Rur

al R

oads

22.5

022

.50

30.0

075

.00

Cap

acity

Bui

ldin

g10

.00

10.0

010

.00

40.0

040

.00

1381

2002

–03

1394

2015 12

1393

2014 11

1392

2013 10

1391

2012 9

1390

2011 8

1389

2010 7

1388

2009 6

1387

2008 5

1386

2007 4

1385

2006 3

1384

2005 2

1383

2004 1

1382

2003

Sola

r Yea

rFi

scal

Yea

rN

umbe

r

Appendixes 87

1381

2002

–03

1394

2015 12

1393

2014 11

1392

2013 10

1391

2012 9

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