2005年-世界发展银行全球_Tonga_Transport_Sector_Review_128页_7mb

Tonga Transport Sector Review Summary

Core Content

This report presents a comprehensive review of the transport sector in Tonga, highlighting the need for institutional, financial, and operational reforms to improve efficiency, sustainability, and competitiveness. It was prepared by the World Bank at the request of the Government of Tonga to support policy and institutional changes in the sector.

Main Objectives of the Review

• To improve the economic efficiency of the transport sector by ensuring cost recovery and minimizing government intervention.
• To identify appropriate institutional structures for managing the sector, integrating policy, regulation, infrastructure, and service delivery.
• To assess and recommend sustainable financing mechanisms, including options for corporatization and privatization.
• To advise on infrastructure development and maintenance priorities across all transport modes.

Key Findings and Recommendations

Institutional Arrangements

• Current Issues: The transport sector is managed by a fragmented institutional framework, with limited integration across transport modes and insufficient management capacity.
• Recommended Change: Establish a Ministry of Transport (MOT) to consolidate responsibility for all transport modes into a single agency. This would improve coordination and policy integration.
• Transition Plan:
  • The Ministry of Civil Aviation (MCA) will be dissolved, and its functions split between MOT and a corporatised airport authority (TAL).
  • The Ministry of Marine and Ports (MMP) will also be dissolved, with its functions split between MOT and Ports Authority Tonga (PAT).
  • MOW will transfer responsibility for road planning and management to MOT, while retaining the ability to provide construction and maintenance services under contract.
  • Vehicle registration, driver licensing, and traffic management functions will be transferred from the Ministry of Police (MOP) to MOT, though traffic enforcement remains under MOP.

Aviation Development

• Current Challenges: Fua'amotu Airport is underperforming, with user charges only covering 56% of operational costs.
• Recommended Actions:
  • Establish Tonga Airports Limited (TAL) as a corporatised airport authority.
  • Develop a 5–7 year cost recovery program to fully recover the direct costs of airport operations and maintenance.
  • Implement a Community Service Obligation (CSO) agreement between MOT and TAL to subsidize net declining costs.
  • Improve airport security to meet international standards, which will impact trade with key partners.
  • Develop a Ten-Year Aviation Strategy and a Five-Year Corporate Plan for TAL.
  • Provide technical assistance to support TAL's establishment and operation.

Road and Land Transport Management

• Current Costs: The direct cost of maintaining the current road system is 5.3 million Pa'anga per year, significantly higher than current government expenditure of 1.7 million Pa'anga.
• Recommended Actions:
  • Increase fuel tax by 0.10 Pa'anga per litre for both petrol and diesel.
  • Raise registration charges for heavy trucks to a considerably higher level.
  • Implement compulsory third-party vehicle crash insurance to protect victims of accidents.
  • Improve vehicle registration and inspection systems, including a computerized motor registration system.
  • Allow private sector involvement in road maintenance and management, while retaining government oversight.
  • Develop a Land Transport Strategy and a Road Maintenance and Management System.

Maritime Development

• Current Issues: PAT is struggling with financial sustainability and lacks clear performance targets.
• Recommended Actions:
  • Implement CSO arrangements for minor ports and harbours.
  • Avoid using profits from the Port of Nuku'alofa to subsidize other ports.
  • Develop a Ten-Year Maritime Strategy and a Ports Development Plan.
  • Establish financial performance targets, including a target rate of return on shareholder equity and a target for increasing port efficiency.
  • Cap port charges and cargo handling tariffs at inflation + 2% to ensure productivity and affordability.
  • Create a separate Profit Centre for security within PAT accounts.
  • Consider private sector involvement in maritime services, especially for outer islands, through competitive tendering.

Key Information

• Population: Tonga's population has grown slowly, with an average growth rate of around 0.5% from 1976 to 2000.
• Economic Context: Tonga's GDP per capita is relatively low compared to other Pacific Island countries, and the economy faces challenges in maintaining transport infrastructure.
• Transport Infrastructure:
  • The national road network is 646 km long.
  • Fuel prices in Tonga are relatively low, which impacts the financial sustainability of the transport sector.
• Financial Recovery:
  • A road fund may be necessary if the government cannot sustain current funding levels.
  • Cost recovery is essential to ensure the long-term viability of transport services.
• Institutional Strengthening:
  • A Transport Policy & Planning Coordination Unit should be established within MOT.
  • Capacity building is required for MOT, TAL, and PAT to ensure effective implementation of reforms.
  • Technical assistance is recommended for the establishment and operation of TAL and PAT.

Conclusion

The report emphasizes the importance of economic efficiency, institutional reform, and sustainable financing in improving the Tonga transport sector. It recommends the establishment of a Ministry of Transport (MOT), a corporatised airport authority (TAL), and a reformed Ports Authority Tonga (PAT). These changes are expected to enhance the sector's ability to support national economic and social development, improve international competitiveness, and ensure the long-term sustainability of transport infrastructure and services.