2003年-世界发展银行全球_Kenya___Transport_Sector_Memorandum_Volume_2_Sector_Papers_166页_10mb

Kenya Transport Sector Memorandum Summary

Core Content

This document provides an in-depth analysis of Kenya's transport sector, focusing on the road, railway, port, and civil aviation segments. It outlines the current state of the sector, identifies critical issues, and proposes actions and strategies for improvement. The report was prepared by the World Bank in collaboration with various stakeholders and highlights the need for sector-specific strategies, improved governance, and enhanced public-private partnerships.

Main Road Sector Overview

Role of the Road Sector

Road transport is essential for Kenya's economic and social development. While railways have a role along main corridors, road transport remains the dominant mode for both people and freight.

Size of the Network

The road network is categorized as follows:

• Main urban network: 3,000 km, very high daily traffic
• Main road network: 6,000 km, >400 daily traffic
• Secondary road network: 9,000 km, >75 daily traffic
• Rural road network: Over 100,000 km, <75 daily traffic

Condition of the Network

• The main road network is in 63% good/fair condition, but much of it requires rehabilitation or reconstruction.
• Urban roads have improved due to Fuel Levy and KUTIP funding.
• Rural roads have seen little maintenance for years, but the KRB Act has begun to change this.

Traffic on the Network

• Traffic is unevenly distributed across different road categories.
• Urban areas have higher traffic volumes, while rural roads are underused and in poor condition.

Responsibilities and Financing

• The Kenya Roads Board (KRB) and District Roads Committees (DRCs) have redefined responsibilities.
• The KRB is responsible for national roads, while DRCs manage rural and unclassified roads.
• Fuel Levy is a major funding source for road maintenance, though its over-commitment has led to waste and liabilities.
• Domestic funding has increased, but it is not sufficient to meet the sector's needs.

User Costs and Charges

• User costs and charges are not well-managed.
• There is a lack of accountability and transparency in how these funds are used.

Road Program and Use

• The Roads 2000 initiative aims to improve rural roads and employment.
• Only 14 districts were covered by 2000, and the program needs re-launching with a more inclusive approach.

Main Strengths and Weaknesses

Strengths

• KRB offers a new opportunity for policy direction and accountability.
• Road maintenance funding has improved significantly.
• Decentralization through DRCs allows for local decision-making.
• Rural roads strategy has potential to improve rural development and employment.
• Qualified engineers exist in both public and private sectors.
• Established construction and consulting sectors provide a solid base for infrastructure development.
• Axle-load control has reduced overloading.

Weaknesses

• No sector strategy hinders effective planning and monitoring.
• Inadequate capital funding limits the ability to rehabilitate and reconstruct roads.
• Institutional malaise affects the ability of implementing agencies to deliver projects.
• Absence of management systems leads to ad-hoc "firefighting" approaches.
• Lack of financial control results in over-commitment of Fuel Levy funds.
• Delayed and inappropriate auditing weakens accountability.
• Inadequate funding and responsibilities for urban roads despite generating 50% of Fuel Levy revenue.

Critical Issues

Development of the Kenya Roads Board

• The KRB needs a clear strategy and selectivity in funding.
• It should focus on financial control, auditing, and monitoring.
• Involvement in procurement is discouraged due to potential accountability issues.

Sector Ownership and Responsibilities

• Responsibilities are now split between the central government and DRCs.
• DRCs have limited understanding of their roles, especially regarding paved and urban roads.
• Amendments to the KRB Act are needed to align responsibilities with ownership perceptions.

Effective Road Implementing Agencies

• The Roads Department is inefficient and lacks commercial management.
• A shift to commercial agencies is recommended.
• Options include:
  • A unitary non-urban road agency
  • A highways agency for main roads
  • A rural roads agency for DRC support
  • A RASTRA model for small towns
  • Urban road agencies for Nairobi and other large cities

Effective Road Maintenance Delivery

• Current maintenance systems are fragmented and inefficient.
• Force account has collapsed, and input-based or performance-based contracting is proposed.
• Performance-based contracting is seen as more effective, though input-based is a necessary first step.

Funding Gap

• Maintenance funding is estimated at around US$120–130 million annually.
• Capital funding needs are around US$1 billion for rehabilitation and reconstruction.
• Donors and the government are unlikely to provide this amount in time.
• Private sector financing is suggested, either through tolls or increased fuel levies.

Public and Private Sector Roles

• The traditional model of public ownership and management is evolving.
• Public-private partnerships (PPPs) are being explored, especially for main paved roads.
• Donors are increasingly supporting private sector concessions through risk guarantees.

Road Safety

• Road accidents are a major issue, with 2,800 deaths and 9,500 injuries annually.
• Lack of enforcement and a coherent safety program contributes to the problem.
• Key interventions include:
  • Traffic safety audits
  • Road marking using durable materials
  • Pedestrian separation through well-maintained walkways and shoulders
  • Driver licensing and vehicle inspection
  • Traffic education in schools

Key Recommendations

• Develop a coherent sector strategy for the KRB and the Ministry of Roads and Public Works.
• Implement performance-based maintenance contracts.
• Re-launch Roads 2000 with a Kenyan-led approach.
• Establish effective road implementing agencies with clear roles and responsibilities.
• Address the funding gap through a combination of public and private sources.
• Create a Road Safety Agency to coordinate safety initiatives.
• Ensure political will for enforcement and policy implementation.