2001年-世界发展银行全球_Sri_Lanka_-_Toward_an_Urban_Transport_Strategy_for_Colombo___A_Technical_Note_51页_294kb

报告摘要

Summary of "Toward an Urban Transport Strategy for Colombo, Sri Lanka"

Core Content

This technical note outlines the challenges and potential strategies for improving urban transport in the Colombo Metropolitan Region (CMR) of Sri Lanka. It is aimed at informing the Government of Sri Lanka and the World Bank on the development of a country assistance strategy. The report reviews existing transport systems, identifies key problems, and proposes reforms to enhance efficiency, affordability, and quality of transport services.

Main Points and Key Information

1. Background of the CMR

Demographics: Colombo (population 0.7 million) and its region (population 5 million) are central to Sri Lanka's economy, politics, and demographics.
Population Growth: Annual growth rate is 2.0–2.5%.
Labor Market: Formal jobs are stable and protected, while informal jobs are short-term and highly dependent on daily mobility.
Income Distribution:
- Lowest two deciles earn Rs 732–1,596 per month.
- Top decile earns Rs 21,465 per month.
- Income growth is around 4.3% annually.
Transport Modal Split:
- 73% of trips are by motor vehicles.
- 22% on foot, 5% by bicycle.
- Street buses account for 63% of all motorized trips.
- 3-wheelers, motorcycles, and autos account for the remaining 32%.
- There is a growing shift towards individual motor vehicles, especially 2- and 3-wheelers.

2. Transport System Performance and Issues

Public Transport Services:
- Low quality and safety, with overcrowding and infrequent services.
- Fares are considered affordable, but service standards are poor.
- Students and school children get discounts, but this benefits higher-income groups.
Private Operators:
- Provide higher-quality services but at higher fares (115–160% more).
- Operate without government support and avoid low-density routes and off-peak times.
Financial Issues:
- RTCs (Regional Transport Companies) suffer from under-spending on maintenance and high financial gaps.
- Fares are regulated but not always enforced.
- Fuel and vehicle taxes collected in 1999 were Rs 12.4 billion, but only Rs 7.9 billion was spent on roads.
Infrastructure and Traffic Problems:
- Road infrastructure is underdeveloped, especially orbital and limited-access roads.
- Traffic is chaotic due to mixed vehicle types and lack of separation.
- Parking is unregulated, causing congestion and safety issues.
- Bicycle and pedestrian infrastructure is lacking, contributing to low usage.

3. Key Propositions for Reform

Regulatory Reform:
- Establish a region-wide public transport authority to set service standards and allocate routes via competitive bidding.
- Replace current dual regulation (separate for RTCs and private operators) with a unified system.
- Shift revenue risk to operators over time, starting with a gross cost contracting model.
- Strengthen the Western Province Road Passenger Transport Authority (WPRPTA) with a budget for compensation and fare adjustments.
Fare Policy:
- Separate social assistance from fare policy.
- Target assistance to low-income passengers rather than subsidizing general fares.
- Use targeted subsidies, as seen in current student and rural route discounts.
Public Sector Operators (RTCs):
- Allow RTCs to compete under the new regulatory framework.
- Restructure RTCs as commercial enterprises, with a threat of liquidation if they fail.
- Avoid full privatization due to labor protection laws.
Mass Rapid Transit (MRT):
- Focus on exclusive right-of-way for high-volume, high-quality services.
- Consider reserved lanes on new or reconstructed roads.
- Explore upgrading suburban rail lines as an alternative to MRT.
Road Expansion and Funding:
- Upgrade existing radial roads to include limited-access features and non-motorized lanes.
- Invest in new orbital roads to support polynuclear growth.
- Introduce road use pricing and user charges to fund road development.
- Replace current fuel and vehicle taxes with a system that reflects social and road costs.

4. Institutional and Policy Challenges

Institutional Weakness: Provincial and local transport institutions are underdeveloped, with the Colombo Municipal Council being the exception.
Decentralization: The national government is under pressure to decentralize, but this has not been effectively implemented.
Regulatory System: The current regulatory framework is inconsistent and ineffective.
Political Influence: Political power often overrides legal and institutional structures.

Conclusion and Recommendations

The report emphasizes the need for a comprehensive and strategic approach to urban transport reform in the CMR.
The transition to a market-based regulatory system is recommended, with a focus on competitive bidding, fare policy reform, exclusive right-of-way, and user charges.
The CMR's transport system is at a critical juncture, with the potential for serious congestion and environmental issues if not reformed.
A new funding model for road development is essential, moving away from general budget allocation to road use pricing.
The World Bank is positioned to support the implementation of these reforms, particularly in terms of policy development, institutional strengthening, and funding mechanisms.

Future Role of the World Bank

The World Bank has played a significant role in shaping the transport strategy for the CMR.
Future support will focus on:
- Implementing the proposed reforms.
- Strengthening institutional capacity.
- Facilitating the transition to a more efficient and sustainable transport system.