2009年-世界发展银行全球_West_Bank_and_Gaza_-_Technical_Aassistance_in_the_Passenger_Transport_Sector_Development___Final_Report_44页_1mb

Summary of the Palestinian Authority Passenger Transport Sector Development Technical Assistance Report

Core Content

This report outlines a strategy for the development and rehabilitation of the passenger transport sector in the West Bank and Gaza, focusing on four main strands: Area Franchises, Operator Consolidation, Fleet Renewal, and Adapting the Regulatory Framework. It is supported by the World Bank and the Trust Fund of the Government of Norway, with the goal of improving the sustainability, efficiency, and quality of the sector.

Main Challenges

• Mobility Constraints: Due to security measures, road closures, and checkpoints, the transport sector faces severe operational challenges, leading to delays, unreliability, and high costs.
• Fleet Deterioration: The existing fleet is old and inefficient, with many buses not running or having limited capacity for renewal.
• Low Productivity: Operators suffer from low productivity and financial losses, making it difficult to sustain operations.
• Market Erosion: Scheduled bus services have lost significant market share to shared taxis and personal transport due to the instability of the operating environment.
• Fragmented Operators: The sector is dominated by small, family-owned companies with limited financial and operational capacity.

Key Findings

• The passenger transport sector is unsustainable without intervention. Many operators are unable to afford fleet renewal and are at risk of going out of business.
• Area Franchises are proposed to consolidate services and provide exclusive geographic service rights to operators, enabling them to improve efficiency and productivity.
• Operator consolidation is necessary for long-term investment and lending, but concerns exist about the willingness of operators to merge and the complexity of asset valuation and dissolution.
• Fleet renewal is critical, with a recommended strategy of replacing old buses with new, durable models to meet Israeli standards and improve service quality.
• Regulatory changes are essential to support the new framework, including the establishment of a Passenger Transport Authority with the power to manage franchises, set standards, and enforce regulations.
• The Public Transport Department must develop new capacities to effectively manage and regulate the sector.

Main Recommendations

1. Strategy for Sector Development

• Area Franchises: Provide exclusive geographic service rights to consolidated companies to improve efficiency and service quality.
• Operator Consolidation: Encourage the formation of legal entities (Unions or Consolidated Companies) to enable participation in Area Franchises and attract investment.
• Fleet Renewal: Recommend systematic replacement of the old fleet with new buses, even if it requires a longer timeframe due to financial constraints.
• Regulatory Adaptation: Reform the regulatory framework to support the new business model, including the establishment of a Passenger Transport Authority with enhanced powers.

2. Area Franchises

• The Ministry of Transport will define the boundaries of franchise areas and set service parameters.
• Franchises will be for a fixed period (5 years), with an automatic extension if performance criteria are met.
• Operators will be required to carry free or reduced-tariff customers, for which they will receive reimbursement from the government.
• The franchised companies will be responsible for detailed service design and performance management.

3. Operator Consolidation

• Unions are proposed as an intermediate step to facilitate the transition to Consolidated Companies.
• Consolidated Companies will be formed as new entities to avoid the complexities of merging existing ones.
• The transition plan should include the development of a Migration Plan from Unions to Consolidated Companies within two years.
• The organisational structure and business plans of the Unions should be based on the operational and financial needs of the sector.

4. Fleet Renewal

• Urgent replacement of the existing fleet is required to ensure continued service and reduce reliance on shared taxis.
• Large buses should be prioritized for replacement, as they account for most of the capacity.
• The cost of a standard urban 12-meter bus is estimated between $100,000 to $150,000, with an estimated investment of $40-60 million for large buses and $20 million for small buses over the period 2009-2012.
• Financing options include:
  • Operators purchasing buses with their own resources or loans.
  • A special credit line for operators.
  • Inward investment through shareholding.
  • Bus leasing to allow operators to access modern fleets without upfront costs.

5. Regulatory Framework

• The Passenger Transport Authority will be established with the power to:
  • Set service and performance standards.
  • Enter into contracts for Area Franchises.
  • Manage administrative and legal processes for permit issuance.
  • Enforce regulations and control unauthorized operations.
• Legal provisions for Area Franchises need to be made to allow exclusive service rights and ensure the legal viability of the new model.
• Relationships with stakeholders such as municipalities and governorates must be clearly defined and strengthened.

6. Timeline

• A two-year transition period is proposed for the formation of legal Unions and preparation for the launch of Area Franchises by the end of 2010.
• The action plan will be time-bound and based on the implementation of the four main strands of the strategy.

Conclusion

The report highlights the urgent need for a coordinated and sustainable approach to revitalize the passenger transport sector in the West Bank and Gaza. It emphasizes the importance of operator consolidation, fleet renewal, and regulatory reform to improve the sector's viability and service quality. The proposed strategy is designed to be practical, implementable, and attractive to investors, ensuring long-term development and resilience.