2004年-世界发展银行全球_Bhutan___Transport_Sector_Note_62页_1mb

Bhutan Transport Sector Note Summary

Core Content

This document outlines the key challenges and strategies for the development of Bhutan's transport sector as it moves into the 21st century. It emphasizes the importance of transport in facilitating regional and urban development, improving access to markets and services, and supporting economic growth. The document also discusses the need for institutional reforms, efficient public expenditures, and environmental sustainability in transport planning and operations.

Main Objectives

The Government of Bhutan (RGOB) has established a transport sector strategy based on the vision of Bhutan 2020: A Vision of Peace, Prosperity and Happiness, with three broad objectives:

1. Facilitate balanced regional and urban development, support internal trade and commerce, and integrate the relatively isolated central and eastern regions with the rest of the country.
2. Reduce the cost of international transport and improve the logistics of international trade and commerce.
3. Improve rural accessibility in an environmentally sustainable and socially responsible manner, especially access to markets, employment, and education, health, and social services.

Key Issues and Options

1. Rural Accessibility

• The 9th Five Year Plan prioritizes improving rural access, aiming to have 75% of the rural population within half a day's walk of a road by 2012.
• A comprehensive approach is recommended that integrates transport with telecommunications, IT, warehousing, and other services.
• The goal is to create a least-cost service network that is safe, convenient, and economical.

2. Access to Regional and Global Markets

• Due to Bhutan's landlocked and mountainous location, logistics improvements are critical.
• Actions include:
  • Technical support for trade-related transport logistics.
  • Establishing a dry port in Phuentsholing with reefer storage.
  • Developing internationally competitive air freight rates for Druk Air.
  • Integrating Bhutan's airport with India for direct cargo flights to Europe, Southeast Asia, and the Middle East.

3. Transport Sector Planning and Coordination

• The Transport Master Plan (TMP) is recommended to guide the sector's development up to 2020.
• A cost-benefit framework should be introduced to evaluate future transport investment proposals.
• The 9th Plan suggests a shift in modal share towards domestic aviation and urban transport infrastructure.

4. Public Expenditures, Cost Recovery, and Subsidies

• The transport sector accounts for 10% of total public expenditures in the 8th Plan, with 20% on recurrent expenses.
• Cost recovery is low, with transport revenue covering less than 20% of expenditures.
• Subsidies are still necessary, but a transparent and coherent policy should be established to avoid entrenching public entitlements.
• Key subsidies include:
  • Nu 0.92 per passenger-km for Druk Air.
  • Implicit operating subsidies for Bhutan Post's urban bus services.
  • Interest subsidies for bus operators on rural routes.

5. Road Technology and Labor Productivity

• Road construction in Bhutan follows obsolete technology and practices, leading to low productivity and high costs.
• The Road Master Plan (RMP) recommends modernizing road technology, including:
  • Route location and hazard mapping.
  • Pavement construction and resurfacing alternatives to PMC.
  • Mechanization of maintenance and construction.
  • Quality assurance systems.
• Labor-intensive methods are not economically viable due to high labor costs and low productivity.
• A shift to mechanized methods is necessary to improve efficiency and reduce costs.

6. Environmental Management

• The Environmental Assessment Act of 2000 provides the legal framework for environmental clearance of road projects.
• EFRC (Environmentally Friendly Road Construction) is being introduced for new road projects, with higher initial costs but lower life cycle costs.
• Recommendations include:
  • Reassessing minor road realignments due to their negative environmental impact.
  • Substituting PMC with surface treatments and machine-laid asphalt.
  • Using modern plant and equipment to reduce emissions and improve efficiency.
  • Applying bioengineering methods for slope stabilization.
  • Extending EFRC to maintenance and improvement works.
  • Using concrete pavements for better environmental and economic outcomes.

7. Sector Management and Institutional Strengthening

• The Ministry of Communications was the main transport authority until 2003, when two new ministries were established: MWHS and MOIC.
• RGOB is shifting from being a provider to an enabler of transport services.
• Staff reductions and contracting out of road construction and maintenance to private contractors are increasing.
• Institutional reforms are necessary, including:
  • Sector reorganization and restructuring options for Druk Air and public transport.
  • Passage of the draft Road Act.
  • Enhancing the role of the private sector in maintenance and public transport.
  • Developing asset management systems for DOR and RSTA.
  • Improving human resource development within transport institutions.

Key Information

• Currency: Bhutanese Ngultrum (Nu), with 1 USD = 47.625 Nu (July 2003).
• Fiscal Year: July 1 – June 30.
• Transport Challenges:
  • High transport costs due to landlocked location and mountainous terrain.
  • Poor road quality, frequent monsoon damage, and low productivity.
  • High reliance on public funding and limited cost recovery.
• Key Recommendations:
  • Introduce cost-benefit analysis for transport projects.
  • Implement EFRC for sustainable road construction.
  • Shift to mechanized methods to improve efficiency and reduce costs.
  • Establish transparent cost recovery and subsidy policies.
  • Develop comprehensive urban transport plans for Thimphu and Phuentsholing.
  • Enhance institutional capacity and sector coordination.

Conclusion

The document highlights the critical role of the transport sector in Bhutan's development, emphasizing the need for modernization, institutional reform, and sustainable practices. It provides a detailed roadmap for improving transport infrastructure, services, and management to align with national development goals and global market integration.