2010年-世界发展银行全球_Bosnia_and_Herzegovina_-_The_Road_to_Europe___Annex_2_Local_Roads_-_Facilitating_Access_to_Services_23页_456kb

Summary of Annex 2: Local Roads - Facilitating Access to Services

Core Content

This document provides an analysis of the local road sector in Bosnia and Herzegovina (FBH) within the context of a broader transport sector review. It outlines the current institutional framework, asset conditions, and financial challenges, while also proposing a strategy for improving the sector. The focus is on the role of local roads in connecting rural communities to essential services and economic opportunities, and on the need for better management, planning, and financing.

Main Points

1. Definition and Function of Local Roads

• Local roads are the lowest tier in the road network, primarily providing access to homes and communities.
• They are vital for connecting small towns, villages, and communities within and between municipalities.
• These roads typically have the lowest speed limits and standards, and carry minimal through traffic.
• They play a critical socio-economic role, especially in rural areas, by enabling access to markets, services, and employment opportunities.

2. Institutional Framework

Legal Framework

• The legal framework for local roads is fragmented and unclear, with responsibilities assigned to different levels of government.
• The Law on the Organization and Functioning of Local Governments (2000) assigns management of local roads to municipalities, but with limited financial support.
• The legal framework for local roads is defined at the entity level (FBH and RS), while the state is working on a draft law.

Decentralization Challenges

• Decentralization has transferred management of local roads to municipalities, but without adequate financial resources.
• There is a lack of institutional capacity, financial autonomy, and clear responsibilities, leading to inefficiencies in road management and maintenance.
• The current system lacks accountability, as there is no transparency in how funds are used for road maintenance.

Road Classification

• The current classification of roads is based on administrative and technical grounds rather than functional needs.
• Local roads are often defined as "what remains" after higher-tier roads are identified, leading to ambiguity and misclassification.
• An updated classification system is needed to identify 'lifeline' roads—those essential for community access—and to reclassify roads with higher traffic or functional importance.

Design and Construction Standards

• There are no appropriate design and construction standards for local roads in FBH.
• Emphasis should be placed on standards that prioritize reliability and durability over traditional engineering criteria like width and speed.
• Proper drainage and maintenance are crucial for the longevity of local roads.

Policy and Planning

• The planning framework lacks coordination and clarity, especially for regional and local roads.
• There is no comprehensive rural development strategy that integrates local road development.
• A coherent strategy would require collaboration between all relevant stakeholders, including NGOs and donors.

Asset Management

• There is no centralized, accurate, or maintainable asset management system for local roads.
• Data on road conditions and usage is limited, making it difficult to plan and prioritize interventions.
• Municipalities often rely on community reporting to assess road conditions, which is not reliable.

3. Asset Condition and Usage

• The local road network spans approximately 14,000 km, with the majority being unpaved.
• Road conditions vary, with only about 54% in good condition and 24% in fair condition in some areas.
• Poor road conditions contribute to high transport costs, reduced agricultural productivity, and limited access to essential services.
• In rural areas, up to 40% of households face serious access problems during winter due to inadequate snow removal.

4. Financing Challenges

• The local road sector faces significant financial constraints.
• Municipalities have limited or no borrowing capacity and are often heavily indebted.
• Funding is typically dependent on central government transfers, which are often not transparent or targeted.
• The current financing system is unpredictable and reflects a "gap-fill" approach, where funds are allocated based on political and bureaucratic considerations rather than clear priorities.

5. Proposed Strategy and Action Plan

• Strengthen Decentralization: Ensure that financial and administrative responsibilities are aligned.
• Improve Institutional Capacity: Provide municipalities with the necessary resources and training to manage and maintain local roads effectively.
• Develop a Rural Development Strategy: Integrate local roads into a broader strategy that supports rural economic development and service access.
• Enhance Sustainability: Focus on long-term maintenance and the use of appropriate design standards to reduce future costs and improve service quality.

Key Information

• Local roads are crucial for rural communities, enabling access to markets, services, and employment.
• The current institutional framework is fragmented, leading to confusion and inefficiencies.
• Decentralization has not been supported by adequate funding, resulting in poor management and maintenance.
• Road classification is outdated and should be based on function rather than administrative jurisdiction.
• Design and construction standards need to be revised to prioritize durability and accessibility.
• Asset management is lacking, with no centralized database to track road conditions and usage.
• Financing is inconsistent and lacks transparency, making it difficult to allocate resources effectively.
• A comprehensive rural development strategy is needed to address the challenges in the local road sector and improve service delivery.

Conclusion

The local road sector in Bosnia and Herzegovina requires a significant overhaul in terms of institutional capacity, policy coherence, and financial sustainability. Improving the quality and accessibility of local roads is essential for economic development and poverty reduction in rural areas. A coordinated, functional, and transparent approach is necessary to ensure that local roads are effectively managed and maintained.