Leaders in Urban Transport Planning

Public Disclosure Authorized Leaders in Urban Transport Planning

Public Disclosure Authorized WORKSHOP REPORT

Public Disclosure Authorized

5 - 11 May

2019 Public Disclosure Authorized

Livingstone, Zambia

Contents

Introduction to LUTP ...... 1 Background ...... 3 Declining Standards of Public Transport...... 4 Workshop Overview ...... 5 Conceptualization ...... 5 Preparatory Missions ...... 6 Structure and Program ...... 8 Key Partners and Funding ...... 9 Participants ...... 9 Presenters ...... 12 Workshop Program ...... 14 Common Challenges ...... 16 Outcomes and Next Steps ...... 18 Outcomes for Participants ...... 18 Participant Feedback ...... 18 Outcomes for Development ...... 19 Appendix A: Workshop Content and Proceedings ...... 21 Appendix B: City-specific Discussions ...... 29 Appendix C: Workshop Participants ...... 37 Appendix D: Participant Feedback ...... 39 Appendix E: Case Studies ...... 54 Maseru Urban Transport Problems ...... 54 Lusaka Decongestion Project ...... 67

LUTP Livingstone, Zambia - May 2019

Introduction to LUTP

Urban transport planning and management is complex and multidimen- sional. However, many developing countries do not have access to good programs in urban planning, especially in the various soft disciplines of urban transport, from planning to finance and operations. It is with this in mind that the “Leaders in Urban Transport Planning” (LUTP) capacity-building program was developed to address the knowledge gap and help city leaders deal effectively with complex urban transport issues.

Launched in 2007, the LUTP program has evolved from a lecture-based approach to a broader multimedia, interactive, and case study-based workshop. It has delivered over 50 workshops in four languages (English, French, Spanish, and Chinese) to over 5,000 leaders from more than 30 countries.

LUTP is a knowledge-sharing program focused on promoting sustainable transport and improving accessibility, efficiency, safety, equity, and green transport. The program helps participants develop a structured way of decision making that considers the complexities of urban transport. The program uses a "hands on" learning approach that makes extensive use of case studies, group exercises, and site visits to highlight the linkages among the different components of the urban transport system.

The centerpiece of the program is a 5- to 7-day workshop, often sponsored by a local partnering institution or by donor agencies. The workshop is pre- ceded by a self-learning phase which involves about 24 hours of self-paced study and covers topics ranging from land use and transport planning to environmental and social issues in urban transport planning.

LUTP equips transport professionals with knowledge of integrated strategic planning and transport management. The program objectives are to build urban transport leadership that:

1. Understands the complexities of urban transport problems and possible context-sensitive solutions; 2. Recognizes the need for integrated mobility planning, what this planning involves, and how it should be undertaken; and 3. Uses lessons learned from cities and cases for better decision making.

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LUTP Livingstone, Zambia - May 2019

The program is designed for senior and mid-level transport professionals. Policymakers and planners from national, state, and city level governments who are responsible for "putting the pieces together" find the program very useful. Participants from civil society, consultants, and potential faculty from local training institutions have also attended LUTP events in the past.

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LUTP Livingstone, Zambia - May 2019

Background

Three simultaneous trends present a significant transport challenge to cities in developing countries - rapid urbanization, rapid economic development, and income growth - leading to even more rapid motorization. In 2000, one in three Africans lived in a city; by 2030, one in two will do so. Average incomes are growing at 23 percent per year. The cumulative effect of population and income growth is an increase in vehicle ownership by over 10 percent annually in most African cities—from less than 50 vehicles in 2000 to over 200 vehicles per 1,000 population by 2015. While the first two of three related trends, urbanization and income growth, provide significant benefits, motorization is a mixed and particularly challenging “blessing.”

Growing motorization has facilitated a further decrease in density in the already flat city structures in Sub-Saharan Africa (SSA). In Accra, for example, the built-up area has increased from 260 square kilometers in 1990 to 795 square kilometers in 2015. The population density, in turn, has decreased from 8,000 persons per square kilometer to 5,500 persons per square kilometer over the same period. The expansion in city size and decline in density has simultaneously resulted in an increasing demand for infrastructure and services and has made it difficult for public transport to serve the market demand. Growing vehicle ownership together with greater use because of increasing travel distances has increased vehicle-km by an estimated tenfold within a decade.

Urban expansion has physically surpassed the city administrative boundary and spilled into adjacent areas, engulfing smaller cities and towns and absorb- ing semi-urban areas and rural hinterlands. Challenges associated with this type of urbanization include: rapid, low-density expansion at peripheries reaching towns and villages that are up to 100 kilometers from the center; ribbon development along feeder and trunk roads, and in cluster patterns that lack basic services and social amenities; and a lack of affordable housing. While growing congestion is already a cause of major concern to policy makers, what is even more alarming is the estimated almost doubling of urban population by 2050. The cumulative effect of population growth, spatial expansion, increases in income, and resulting increases in vehicle ownership and use will make daily living that much more difficult.

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LUTP Livingstone, Zambia - May 2019

Traffic congestion has been documented to have detrimental effects on productivity, air pollution, fuel wastage, health, and quality of life. Studies on these costs in monetary values have prompted numerous policy deliberations and generated interest in providing traffic solutions to help mitigate the impacts.

Declining Standards of Public Transport. Growing and sprawling cities, together with rapidly increasing incomes and changing behavioral patterns, make conventional public transport less and less able to meet the mobility and access needs of the bulk of urban residents who cannot afford private transport of any kind. Public transport must compete for road space with exponentially growing numbers of taxis, motorcycle taxis, motor bikes, motorcycles, and private autos, degrading its performance. It must compete with these subsidized modes (both directly in the form of free parking and indirectly in the form of many negative externalities) for customers, while increasing congestion makes it less able to do so.

The increasingly inhospitable roadway environment for surface public transport makes it less desirable for customers, which, in turn, makes it difficult financially to sustain the quality and level of service. This leads to the public transport “death spiral” so familiar from the history of developed cities. As a result, getting to work has become increasingly difficult in Africa’s sprawling commercial and political capitals, in large part because of the tidal wave of minibuses and motorcycle taxis that have arrived to take the place of faltering traditional fixed route, fixed schedule public bus services, irrespective of who operates them.

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LUTP Livingstone, Zambia - May 2019

Workshop Overview

In the past there have been multiple efforts by several development partners - the European Union (EU), the German Agency for International Coopera- tion (GIZ), the African Development Bank (AfDB), the African Transport Policy Programme (SSATP), the World Bank, (WB), the French Develop- ment Agency (AFD), and the Japan International Cooperation Agency (JICA) - to understand and improve the conditions of urban transport in Sub-Saharan Africa. However, the efforts have not been able to achieve the de- sired results, because of; a) the lack of coordination between different initiatives and an inability to build on a common framework; b) an absence of a coherent strategy to address the problem; c) an inability to bring all countries together to learn from each other; and d) the absence of a long-term sustained effort.

Conceptualization Early in 2018, the World Bank’s Transport Global Practice identified the need to take a more systematic approach to the urban transport challenges facing cities in Sub-Saharan Africa. The LUTP program was identified as an ideal vehicle to launch a regional program on urban transport. The initiative would elevate the growing challenges in the regional dialogues on transportation, allow for the development of a more nuanced understanding of these challenges within the Bank and among development partners, and start the process of capaci- tating decision makers in the region with this initial cadre of participants.

Planning for the workshop began in earnest in the second quarter of 2018, driven by a core group of Bank staff working on the region and of supporting consultants working on the LUTP program. From the outset it was acknowledged that the initiative would need to be built off of a series of missions to each country to meet with officials and other stakeholders, since there was limited up-to- date knowledge and understanding of the detailed circumstances in each country. To manage the scale of the undertaking, a decision was taken to focus work on capital cities, since in nearly all cases these are also the most populous cities facing the most severe impacts.

The ambition was to include as many countries in the region as possible, while keeping the workshop size to less than 40 participants to ensure that all participants were able to be engaged and contribute to the debate and discussion. A key decision was to ensure that the countries invited to participate also shared

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LUTP Livingstone, Zambia - May 2019 similar developmental contexts and levels of sophistication with respect to urban transport planning capacity. With this in mind, six countries in the region were selected for participation in the workshop: Botswana, Lesotho, Malawi, Namibia, Zambia, and Zimbabwe. In the run-up to the workshop a request was received from colleagues in the Bank to also include delegates from Uganda (see Error! Reference source not found..1).

The decision was taken to host the workshop in Livingstone, Zambia, because it is a destination with a number of attractions, high quality hotels and con- ferencing venues, and an international airport and because no visiting delegations would require visas to travel there.

Figure 1.1: Country Coverage for LUTP, Zambia

Livingstone

Preparatory Missions Missions were conducted to Botswana (July 2018), Lesotho and Zambia (September 2018), Zimbabwe (October 2018), and Malawi (February 2019) to meet with officials and other stakeholders, discuss the challenges being faced in

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LUTP Livingstone, Zambia - May 2019 cities, learn about the planning in place and being developed, and discuss participation in the LUTP workshop.

These missions proved to be invaluable in the planning for the workshop. One of the core features of the LUTP program is to have participants review and discuss case studies designed to highlight specific urban transport issues. To maximize the impact of this approach, it is best that case studies are contextually relevant to the participating officials. The preparatory missions were used to collect information, insights, and documentation that was used to develop case studies and other learning materials for use in the workshop.

Two case studies, Maseru and Lusaka, were developed from information collected during missions in these cities. A third exercise, focusing on Harare’s draft Public Transport Policy, was also developed from the mission. All case studies and exercises developed in this way were presented with the approval of country participants.

The missions also offered the opportunity to engage with a range of stakeholders in every city visited. Every attempt was made to meet with as many people as possible on the missions. Mission officials met with city authorities, a wide array of national ministries, financiers, bus operators, and industry lobby groups. Invariably every meeting contributed valuable insights into the challenges facing cities. Preparatory mission itineraries are presented in the annex- ures. [[ There was no appendix on the preparatory missions. All five were only on the workshop itself. Please check this line. ]]

Key themes identified during the mission were:

• Multiple institutions, poor resourcing Many cities have a confusion of authorities involved in one way or another in urban transport, with duplicate responsibilities and poor coordination hampering service delivery and quality. Moreover, each institution in turn is weakly resourced, meaning that they struggle to deliver on their mandates. • Weak strategy, poor policy, limited planning implementation While many cities have developed urban transport plans, often there is a lack of any evidence of implementation, suggesting that plans are not supported by either the existing resources or the strategy required to implement them. Moreover, cities struggle with a lack of clear, coherent policies.

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• Focus on infrastructure City plans often focus almost exclusively on infrastructure improvements and large capital projects to address the challenges of congestion and poor accessibility. While infrastructure improvements are undoubtedly a re- quirement, these plans are often very ambitious, while funding is severely constrained, and only limited thought is given to the need to address the “soft” issues that can be addressed in the interim. The role that private sector capital can play in urban transport is also often overlooked.

With these issues in mind, a workshop structure was devised, aimed at equip- ping participants to take a more holistic view of the issues confronting their cities while helping them to think creatively about possible solutions.

Structure and Program The Livingstone edition of the LUTP was planned to be delivered over 5- days, revolving around case discussions, group work, and problem solving, inter- spersed with a series of informative lectures. The basic approach, as with previous LUTP events, was based on “learning by doing”, to allow participants to learn while they work. A number of social events were also arranged to facilitate network building and to allow participants to interact on the material presented in a more relaxed atmosphere. The Bank also arranged that over the course of the week, participants from each city had an opportunity to meet one-on-one with the Bank team, either over lunch or dinner, to discuss their particular situation and to explore opportunities for support in their city. (See Appendix B for a more detailed discussion of these meetings.)

Building on findings of the preparatory missions and experiences from previous LUTP events, the workshop content was structured around five thematic areas:

• DAY 1: Institutions and Policy • DAY 2: Strategy and Implementation • DAY 3: Financing and Public-Private Partnerships (PPP) • DAY 4: Bus Rapid Transit (BRT) and Informal Transit • DAY 5: Working with the World Bank and Development Partners

Seven case study papers and presentations were prepared and discussed over the course of the workshop. Five of the seven papers and presentations involved

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LUTP Livingstone, Zambia - May 2019 completely new material, with the other two (Lagos and Dakar), having been sourced from previous LUTP events. Those case studies were:

• Lagos Transport Authority - Challenges in Setting up a Transport Author- ity • Urban Transport Policies: Examples from Harare • Maseru Transport Strategy • Lusaka Decongestion Plan • Dakar Bus Financing • BRT in South Africa • Measure, Model, Manage Move – Paratransit Improvement in Cape Town

A detailed program of the workshop content and proceedings is provided in Ap- pendix A.

Key Partners and Funding The Public – Private Infrastructure Advisory Facility (PPIAF) was identified as an ideal partner to support the initiative, and the Bank entered into discussions with donor representatives in mid-2018, culminating in grant approval by the end of 2018.

The Africa Transport Policy Programme (SSATP) was also approached for cofunding and kindly agreed to cover the costs for two delegates from each of their member countries and additional delegates from the host country.

The Mobility and Logistics Trust Fund (MOLO) was approached in the run- up to the event to provide additional cofunding to cover the costs of administrative support and to sponsor some of the learning events planned for the program.

In all, the Bank team raised approximately $130,000.00 to host the event. All costs associated with attendance was covered by Bank-sourced funds, including travel and transfers, accommodations, all excursions, and all meals.

Participants LUTP targets delegates in middle and senior management positions. For this event it was important to ensure that city governments were well represented, and also to ensure participation beyond the traditional transport ministries. The inten- tion was to build up a group of capacitated individuals across multiple areas of

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LUTP Livingstone, Zambia - May 2019 government who could then advocate for change more effectively from a range of perspectives.

Invitation letters were sent to either the Ministry of Finance or, as the particular country context dictated, the coordinating ministry, to help identify five individuals from within government who would benefit from participating in the workshop. Some suggestions as to who might be selected were provided to coordinating ministries:

• City government: o Head of transport planning and policy o Head of traffic management and roads • Ministry of Transport: o Key “policy-level” decision maker in planning and implementation of urban mobility strategies, programs, and projects • Ministry of Local Government: o Key “policy-level” decision maker in planning and implementation of urban development, programs, and projects • Ministry of Finance/National Development Planning (and/or): o Key official working on local government infrastructure financing and development.

Ultimately, 30 officials from the various governments attended the event. The distribution and number of attendees is shown below in Figure 1.2:

Figure 1.2: Attendance by Country

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LUTP Livingstone, Zambia - May 2019

0 Botswana Lesotho Malawi Namibia Uganda Zambia Zimbabwe

The largest proportion of participants came from city governments, with large representation among the Ministries of Transport, Local Government, Plan- ning, and Finance (Figure 1.3). Most participants were involved in policy making and program management, while the majority of participants held senior or mana- gerial roles in government (Figure 1.4).

Figure 1.3: Attendance by Governmental Department

Finance 14%

Planning 10% City Government 38%

Transportation 24% Local Government 14%

Figure 1.4: Roles and Seniority of Participants

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LUTP Livingstone, Zambia - May 2019

Policy

Program

Technical

0 5 10 15 20 25

Junior Middle Senior

A full contact list of workshop participants is provided in Appendix C.

Presenters The presenters contributing to the workshop included:

1. Mr. Ajay Kumar 2. Mr. Edward Beukes 3. Mr. Brian McCollom 4. Ms. Wenyu Jia 5. Mr. Philippe Neves 6. Mr. Zemedkun Girma Tessema 7. Mr. Justin Coetzee 8. Ms. Marcela Silva 9. Mr. John Chiluwe 10. Mr. Ben Gericke

Mr. Ajay Kumar was responsible for presenting and moderating discussions on the case studies, which formed the central part of the workshop. (See further details on the case studies in Appendix E.) He was supported by Mr. Edward Beukes and Mr. Brian McCollom. The other presenters covered the various specialist topics. Details are covered in the following section and are provided in the program attached in Appendix A.

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We thank the presenters for their kind contributions to the program and their ex- cellent presentations.

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LUTP Livingstone, Zambia - May 2019

Workshop program

May 5, 2019 - Arrival

• Welcome, Introductions, Workshop Overview and Urban Transport Quiz • Welcome Cocktail Event at Hotel May 6, 2019 – Institutions and Policy Institutional Challenges in Cities • Case Study: Lagos Transport Authority - Challenges in Setting up a Transport Authority • Discussion – Institutional Challenges in Cities Urban Transport Policies • What are Sustainable Urban Transport Policies and What are the Key As- pects of the Process for Developing Them? • Discussion on Urban Transport Policies: Examples from Harare, Malawi, and Others SSATP Third Development Plan (DP3) • SSATP DP3 - Urban Transport and Mobility Pillar: Presentation and Dis- cussion May 7, 2019 – Strategy and Implementation Strategy and Implementation • Case Study: Maseru Transport Strategic Planning • Strategic Planning Process • City Specific Discussions Project Identification, Appraisal and Implementation in the Plan- ning Process • Case Study: Lusaka Decongestion Plan May 8, 2019 – Financing and PPPs Overview of Maximizing Finance for Development (MFD) and Pub- lic-Private Partnerships (PPP) in Urban Transport • Presentation: MFD / PPP Methods and Practices

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Financing Urban Public Transport (PT) • Case Study: Dakar Bus Financing • Discussion: Opportunities and Options for PPPs for PT Operations and Capital Investment in SSA Cities Parking Financing and Management and the Role of Technology • Presentation: Parking Issues in Cities • Discussion: Parking Issues in Cities May 9, 2019 – Bus Rapid Transit (BRT) and Informal Transit Overview of BRT and Case Studies in Africa • BRT – What is it and How Should it be Planned for Each Unique Corri- dor Situation? • Case study: An Overview of BRT Projects in Africa • Case study: BRT in South Africa Informal Transit • Presentation: Measure, Model, Manage Move – Paratransit Improvement in Cape Town • Discussion: Service, Business and Operating Issues in Informal Transport Regional Urban Transport Challenges • Discussion: Common Issues in Cities in the Region May 10, 2019 – Wrap Up and Closure Urban Transport Quiz and Takeaways • Discussion: Take Away Messages and Next Steps Introduction to the World Bank and Development Partners 1. Introduction: WBG Instruments and Engagement Mechanisms 2. Overview: The Role of Development Partners in Urban Transport Closing Remarks One-on-One Discussions with Cities

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Common challenges

The LUTP workshop has highlighted several common challenges among the cities that participated that are worth reflecting on when considering a regional program for urban transport. All the cities in attendance at the workshop cited the following as key areas of concern: 1. Rapidly worsening congestion 2. Rapidly deteriorating conditions in public transport systems 3. Urgent need for maintenance, upgrading, or rehabilitation of existing infrastructure 4. Weak, unimplementable or nonexistent plans and policies 5. Ineffective and inefficient regulatory structures Moreover, discussions over the course of the week highlighted that: 1. Cities in the region are poorly funded and weakly resourced, limiting their ability to make significant changes to the urban transport environment. This is despite the fact that cities often have clear jurisdiction over large parts of the networks in their jurisdictions. 2. Numerous factors limit the ability of cities to act, including: a. Multiple roleplayers in control of land In many cities there are multiple entities in control of land and urban development, with the city authorities having very limited control over how, where, and when development occurs. In many cities traditional authorities still have a significant influence on the development process, particularly with residential developments. b. Multiple authorities in control of revenue streams Often, revenues from licensing and permitting go to central governments, and not to cities. In these cases, cities have a limited ability to influence the tariffing and permitting processes that directly impact on urban transport developments, while still having to deal with the ramifications of decisions made in these areas. In many cities, multiple central government ministries control different aspects of urban transport regulations, with little coordination between them to ensure the efficacy of regulations and their align- ment with policy or developmental objectives. c. Weak tax bases Cities in the region often have very limited ability to collect revenues through taxes. This is largely due to weak or outdated cadas- tres and outdated property tax laws and regulations.

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3. Multiplicity of responsible authorities. In many cities there are multiple authorities responsible for various aspects of urban development and the transport system, with limited or weak coordination among these entities. This often leads to significant levels of duplication, and at times, authorities working at cross-purposes to each other. 4. Limited planning and implementation capacity in government. In those cities where urban transport plans have been developed, very little has been done to implement the recommendations. The reasons most cited are: a. Lack of funding. Plans are often focused almost solely on investment projects, which receive major financial commitments, leaving few resources for other priorities in environments of severe fiscal constraint. b. Lack of political commitment. Decision makers often fail to appreciate the necessity for early interventions, with programs going unfunded for years after conception. Moreover, urban transport projects are often complex, involving many role players, and as a result are difficult to undertake and implement. These projects require long-term political support to ensure their success, but the reforms required to support them are often politically difficult to bring about. 5. Focus on infrastructure and investment over policy and institutional reforms. Urban transport plans often require extensive investments in infrastructure, vehicles, and facilities. In many cases, programs that do get implemented neglect the critical reforms required to ensure their sustainability.

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Outcomes and Next Steps

The objectives of the workshop were to: 1. Develop an understanding of the complexity of urban transport problems and potential context-sensitive solutions among national/city transport policy makers; 2. Learn from international experience and provide a framework for cities to develop sustainable solutions; and 3. Develop a common platform for cities to learn from each other. Outcomes for Participants The workshop has comprehensively achieved the goals set out for it. A wide range of officials from seven countries in the region were reached, in most in- stances in countries where the Bank has not yet had any substantive discussions on urban transport. Officials who participated were presented with a learning opportunity that allowed them to engage meaningfully with other similar officials about the complex challenges in the sector.

The workshop program addressed all the core issues encountered by cities in the region, touching on all the issues identified during the reconnaissance missions. The material, therefore, resonated well with the participants, who were able to relate to the issues covered in the case studies that had been prepared and presented at the workshop.

Participants in the workshop were also able to meet and interact with peers from across the region, develop networks, and create relationships that they can draw upon for advice in future. The workshop structure was also designed to en- courage participants to share experiences, facilitating peer learning at a regional level.

Participant Feedback Participant feedback was collected at the end of the course. Responses from participants are shown in Table 1.1. Feedback was received from 31 participants. Overall, feedback on the course was very positive, with 90 percent of participants rating the quality of the sessions as 4 or better (on a scale of 1 to 5) and 96 percent of participants rating the quality of supporting materials as 4 or better. Similar positive feedback was received on the impact of the course, with 94 percent of participants rating the extent to which the course deepened their understanding of

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LUTP Livingstone, Zambia - May 2019 urban transport as 4 or better, and 87 percent of participants agreeing that the course improved their confidence in working on urban transport issues. Critically, 96 percent of participants also left the course feeling motivated to take action to improve urban transport in their respective cities.

Table 1.1: Participant Feedback (percentage)

Questions 1 2 3 4 5 1 Extent to which the information presented is 3.45 3.45 31.03 34.48 27.59 new to you 2 Extent to which the content of this course 0.00 0.00 12.90 19.35 67.74 matched the announcement objectives and target audience 3 Overall quality of the sessions 0.00 0.00 10.34 58.62 31.03 4 Overall quality of supporting materials 0.00 0.00 3.33 43.33 53.33 5 Extent to which this course helped improve 0.00 0.00 6.45 35.48 58.06 your understanding of urban transport in relevant dimensions 6 Extent to which this course helped improve 0.00 0.00 12.90 41.94 45.16 your confidence to work within a multidisciplinary team in charge of urban transport planning 7 Extent to which this course helped improve 0.00 0.00 23.33 43.33 33.33 your confidence to develop urban transport plans, programs, and projects that are integrated and sustainable 8 Extent to which this course helped you feel 0.00 0.00 3.33 23.33 73.33 more motivated to take action to improve urban transport plan in your city or community 9 Extent to which this course helped improve 0.00 0.00 9.68 48.39 41.94 your relationships with other individuals or groups

A wide range of specific comments were received from participants on specific aspects of the course that worked well or did not, including suggestions for the team on how to improve the course going forward. These are presented in Appen- dix D.

Outcomes for development The investigations undertaken in the preparatory stages of the workshop and the discussions held over the course of the workshop have helped shape

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LUTP Livingstone, Zambia - May 2019 discussions within the Bank concerning priorities in urban transport in the region. In particular, the discussions with cities can be used to inform a strategy for a regional engagement on urban transport.

There are clear thematic areas that need specific attention. Many cities need support with the very practical, day-to-day issues of transport system management: licensing, permitting, regulatory systems, network planning, management, and monitoring. In addition, issues such as a lack of or weak long-term planning, policy development, and implementation strategies pose difficulties for officials trying to ensure the sustainability of their cities.

The intersection between land use and development control and between urban transport planning and investment also stood out as areas of concern. Many cities lack formal development control processes and systems. Cities struggle with inadequate or outdated zoning systems, limited information on land use, or the lack of geographic information databases (GIS) to track and monitor development. Many cities have no formal traffic impact assessment processes and no policies for managing off-street parking.

A key area for additional focus is the role of informal transit in cities in the region. This is also a topic that is receiving increasing attention in the Bank, in part because of its importance to the success of public transport reform and investment programs. However, what has emerged from the workshop is that many cities in the region are poor candidates for BRT investment, and some may not even be able to sustain the introduction of quality bus systems. In these circumstances, initiatives to improve conditions in informal transit systems may be the best short-term approach to addressing problems with public transport quality. By the same token, cities need support in managing their informal transit networks.

In addition, the workshop helped to highlight the urgent need for leveraging the private sector to support the sustainable development of the urban transport sector in the region. The scale of investment required in cities is beyond the reach of both governments and development finance institutions. Although there are several opportunities for private sector partnerships, most cities have very limited experience with these kinds of initiatives. The Bank and its partners can play a key role in helping cities identify and develop sustainable public-private partnerships to further the cities’ developmental objectives.

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Appendix A: Workshop Content and Proceedings

This section details the workshop proceedings, key discussions, and outcomes.

Sunday, May 5th, 2019 – Opening and Welcome The workshop was opened with a welcome event with opening addresses by Mr. John Chiluwe, Assistant Director for Roads and Railways at the Zambian Ministry of Transport and Communications, and Ms. Marcela Silva, World Bank- Transport Practice Manager for the Southern Africa region.

This was followed by a short exercise where participants were asked to fill out a short “quiz” to test their current level of understanding. The answers would be revisited again at the end of the week, where participants could review their original answers to see how much they had learned and grown over the course of the week’s sessions.

Thereafter, an opening cocktail hour was held to allow participants an opportunity to socialize and to get to know the Bank staff, representatives of the donors and other development agencies, as well to interact with each other.

Monday, May 6th, 2019 - Institutions and Policy The first official workshop-day of the week focused on Institutions and Pol- icy. The first set of sessions were aimed at getting participants to think critically about the impact institutions have on delivery of urban transport interventions, the role that various levels of government should play, and how this compares to the circumstances in their own cities. The Lagos case, led by Mr. Ajay Kumar, formed the starting point for discussions.

Key takeaways from the case and the discussion that ensued were that:

• Successful urban transport programs can benefit from a dedicated, well- resourced transport authority provided it is given the necessary decision- making responsibility and is provided with political support. • Transport authorities should be resourced with appropriately qualified staff, which may require that they be allowed to set their own remunera- tion scales to attract the best talent.

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• In Lagos, the Transport Authority established its reputation by demon- strating its capabilities with a series of successful “quick win” projects, thereby winning the support of the public and politicians. • The Lagos Transport Authority moved quickly on the back of popular support to secure a dedicated funding stream to ensure its sustainability. • Maintaining good relationships with other government departments is key to ensuring ongoing political support.

The second set of sessions, led by Mr. Edward Beukes, focused on policy – in particular, what are the features of a good policy and what is the process needed to develop a good policy? Discussions were anchored by an examination of a Public Transport Policy being developed by the Harare City Council, which gra- ciously provided a draft of their work for discussion in the session.

Key takeaways from the case and the discussion that ensued was that:

• Sound urban transport policy is key to ensuring that planning and implementation is well-thought out and delivers the expected results. • This requires: o Careful articulation of the issues o Detailed analysis of the evidence o Consideration of previous work and the goals of government o Innovative thinking and wide consultation o Testing for realism and implementability o A robust assessment of options and risks o A clear delineation of authorities and responsibilities o An effective process for monitoring, evaluation, and accountabil- ity

The last session of the day was a presentation on the SSATP’s Third Devel- opment Plan (DP3) from Mr. Zemedkun Girma Tessema, who highlighted some of the work being done through the Urban Transport and Mobility Pillar.

Tuesday, May 7th, 2019 - Strategy and Implementa- tion Day two opened with a discussion led by Mr. Ajay Kumar on the Maseru case study, compiled with the kind support of the Lesotho delegation. The case lays out some details about the city, its characteristics, and demographics before outlining the details of its urban transport sector.

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Key areas of inquiry explored by the case are:

• The impacts of the diverse array of authorities involved in the sector • The reasons behind the lack of implementation of current plans • The reasonableness of current plans in the context of Lesotho • How to prioritize among the many priorities the current plan identifies.

This was followed by a presentation on Strategic Planning by Mr. Brian McCollom, who outlined the necessity of using best practices and of having an alternatives analysis. A key takeaway from this discussion was that to be effective, strategic plans should be:

• Comprehensive, covering the entire metro area, considering all modes, and addressing transport quality issues • Cooperative • Communicated • Connected • Championed • Continuous

Mr. John Chiluwe, Assistant Director in the Ministry of Transport in Zam- bia, presented an overview of the recently finalized Zambian National Transport Policy, highlighting its contributions to the ongoing dialogue on urban transport in Zambia.

The final session of the day was a discussion led by Mr. Ajay Kumar on the Lusaka case study, which focused on the Decongestion Plan being promoted in that city. The discussions centered on a 20-year land use and municipal services plan developed for the Zambian government in cooperation with the Japanese In- ternational Cooperation Agency (JICA), and how its recommendations relate to the urban transport circumstances in Lusaka.

The discussion confirmed a few key issues related to strategic plans:

1. Plans need to respond to a vision for the city and the core issues that it faces. 2. Plans need to be informed by proper consultation and a careful consideration of alternatives. 3. Plans need to be realistic in terms of the ability of government to finance and implement the recommendations.

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In the evening, delegates enjoyed a sunset cruise on the Zambezi River, a welcome opportunity to socialize, network, and enjoy the natural splendor of the area.

Wednesday, May 8th, 2019 - Financing and PPPs The third day of the workshop started with a detailed presentation on Man- aging Unsolicited Proposals in Infrastructure Projects by Mr. Phillipe Neves, detailing the key aspects of the World Bank’s Policy Guidelines for Managing Unsolicited Proposals Projects. The topic generated much interest from the audience as this is a challenge encountered frequently by officials in the region.

Mr. Neves followed this presentation with a detailed overview of methods and practices for Maximizing Finance for Development (MFD) in Transport. His presentation highlighted the need for MFD approaches in relation to the growing infrastructure finance gap and the inability of government or development banks to cover this gap.

The important findings from this session were:

1. African governments are challenged by limited resources in managing the volume and quality of unsolicited proposals. Political agendas and influence often play a major role in these proposals. 2. There is a lack of experience in dealing with PPPs – governments need support in identifying, preparing, and managing PPP contracts.

This was followed by a discussion led by Mr. Ajay Kumar on the Dakar Bus Financing case that addressed some of the challenges of transitioning the informal transit sector towards formality. The case highlights the problems encountered when establishing new bus companies (Dakar Dem Dik in Dakar), and con- trasts this with the public-private partnership approach taken in later years in Da- kar. Delegates were encouraged to reflect on the experiences in Dakar in relation to circumstances in their own cities.

Day 3 concluded with a wide-ranging discussion on parking policy and management. Mr. Brian McCollom presented an overview of typical parking issues in cities, which was followed by a discussion on the challenges associated with parking management and development control in the participating cities. Officials from the Harare City Council shared their experiences with contracting parking management in the city center, highlighting the challenges they have faced with

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LUTP Livingstone, Zambia - May 2019 securing and monitoring the revenues collected by the contractor. Key issues emerging from the discussions were:

1. Parking plays a key role in traffic management in cities and is a major cause of congestion. 2. The primary use of parking management is to manage travel demand. 3. Most cities present do not have any policy on parking in their cities. 4. Most cities have very limited ability to monitor or enforce parking regulations 5. Cities struggle with monitoring and enforcing development controls. 6. There are opportunities to involve the private sector, but these must be ac- companied by firmer controls and contract management practices.

Thursday, May 9th, 2019 - BRT and Informal Transit Day four focused on Bus Rapid Transit (BRT) and Informal Transit, two areas of particular interest for participants, because many cities in attendance have ambitions to develop BRT systems and struggle with the challenges of rapidly- expanding informal transit services.

The day was structured in three main sessions:

1. A short overview of BRT – what it is, and how it should be planned 2. An overview of BRT projects in Africa, including a detailed discussion of the BRT program in South Africa 3. Informal transit, focusing on a case study on formalizing informal transit operators in Cape Town

Mr. Brian McCollom presented an overview of BRT, discussing what it is and what the main considerations are when planning for it. His presentation also covered some key lessons learned from WB experiences to date:

• BRT can be an attractive, potentially cost-effective rapid transit option. • BRT can promote sustainable development. • There is no single best prescription for a BRT system. • Addressing issues of governance upfront is critical to success • A sound communications plan and public education campaign should be included

This presentation was followed by Ms. Wenyu Jia, who presented an overview of WB-funded BRT projects, providing a global overview of experiences

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LUTP Livingstone, Zambia - May 2019 and an in-depth review of projects in Sub-Saharan Africa. Highlights from her presentation include:

1. The Bank has funded 19 BRT projects since 2000 of which: a. 8 are completed or closed; b. 9 are currently active; and c. 2 are in the pipeline. 2. Implementation timelines almost always exceed expectations, often sub- stantially. 3. Project costs often exceed original expectations, with changes in capital costs often driving overruns.

Ms. Wenyu’s presentation highlighted the importance of a well-capacitated authority with a clear mandate and strong state support as being vital for the success of the project. Furthermore, her presentation stressed the importance of sound preparatory planning and the collection of detailed baseline data to inform the plans before beginning implementation.

Mr. Edward Beukes presented an overview of the experiences with implementing BRT in South Africa. The talk highlighted the following key points:

1. South Africa embarked on an expansive and ambitious BRT program in the late 2000’s covering 13 metro areas. 2. The program has been challenged by slow implementation and unexpect- edly high capital and operating costs, hampering delivery and impact. 3. Performance of South African BRT systems is markedly poorer than in comparable African projects. 4. The program has struggled with competition from illegal informal transit operators, and the approach to compensation and incorporating incumbent operators has been expensive while enjoying only modest success. 5. Urban form plays a major role in the viability of BRT systems and needs to be carefully considered when planning services.

Ms. Wenyu Jia followed this discussion with a short presentation on alternative interventions to address the challenges faced by cities in Sub-Saharan Af- rica. Her talk stressed the importance of contextual differences and the necessity therefore for thorough diagnostic studies to inform solutions. She discussed a range of innovative approaches to data collection that can be exploited to limit costs. She also highlighted the importance of targeting simple, “low-hanging

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LUTP Livingstone, Zambia - May 2019 fruit” interventions, such as public transport priority infrastructure and improvements at terminals and transport interchanges to improve the quality of the services provided in cities.

Day four was rounded off with a session on informal transit reform by Mr. Justin Coetzee, from GoMetro, a South African consultancy active in software development and data collection services for the informal transit sector. His presentation described how data collected using mobile technologies was used in Cape Town, South Africa, to understand the operational characteristics of the informal transit sector. He expanded on how the analysis of the data has informed the development of a program to formalize operators through the municipality’s Taxi Operating Company program. He also described some of the early outcomes of a pilot project in Cape Town that has had some success in improving conditions for passengers and operators.

Friday, May 10th, 2019 – Wrap up and Closure The last day of the workshop was devoted to discussions on takeaway messages, next steps, and creating opportunities for the World Bank and the development partners in attendance to outline their programs in the region, introduce their instruments, and describe the mechanics of a typical engagement.

Mr. Ajay Kumar and Mr. Brian McCollom began the day by reviewing the quiz results from the opening day. This session gave delegates the opportunity to reflect on how their views may have shifted over the course of the week. Some of the key messages shared by delegates included:

1. A properly resourced and mandated transport authority at the local level, with access to a dedicated stream of funding, is important. 2. Master planning is useful, but only if the recommendations can be implemented in a realistic timeframe. Unfunded plans that have resulted in little to no progress towards implantation abound in the region. 3. Many delegates commented on the merits of taking smaller, incremental, practical steps towards urban transport improvement. 4. The linkages between land-use management and urban transport efficien- cies was clearly established through the workshop, and delegates discussed some of the immediate actions that could be pursued towards aligning practices in these two arenas towards a unified agenda.

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5. The importance of sound, evidence-based policy and regulatory interventions and the support required by cities to advance on these priorities was widely noted. 6. Many delegates expressed a desire to have the messages and learnings delivered through this event carried over to the political realm.

Mr. Ben Gericke, lead transport specialist at the World Bank, delivered a short presentation on the workings and activities of the World Bank and detailed the use-cases for the various instruments available through Bank support programs. This was followed by short presentations from Mr. Phillipe Neves and Mr. Girma Zemedkun on the PPIAF and SSATP programs.

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Appendix B: City-specific discussions

Over the course of the workshop, the World Bank team arranged one-on-one meetings with all the participating governments and development partner or- ganizations. These meetings provided an opportunity to have specific discussions concerning:

1. The particular challenges facing each government 2. Priorities in urban transport in the country 3. Recent developments in urban transport in the country 4. Modalities for potential World Bank support to the country

In this section of the report we present an overview of each discussion with the respective governments.

Windhoek, Namibia The delegates from Windhoek were active participants in the workshop and had prepared well for participation in the event. The Windhoek delegation even prepared a short paper outlining what they considered to be the primary issues in their city, and this provided the World Bank team with solid insights into the context in Windhoek.

Regarding the challenges facing Windhoek, the delegates highlighted that:

1. Windhoek developed a Sustainable Urban Transport Master Plan (SUTMP) in 2013 with the support of the German Agency for Interna- tional Cooperation (GIZ). While the plan is comprehensive, the government has had significant challenges implementing its recommendations, primarily because the capital costs of approximately US$350 million that the plan calls for are very prohibitive. 2. Windhoek suffers from many of the same spatial challenges facing South African cities – very low densities with the poorest sectors located furthest away from economic opportunities. 3. Windhoek has a weak public transport system and high levels of com- paratively long-distance walking.

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The areas of focus in Windhoek’s planning reflects these priorities as well. The plan includes the development of a BRT system, and there is a strong focus on investment for nonmotorized transport infrastructure. The plan also empha- sizes the need for institutional reforms and capacity building, calling for the creation of a National Transport Agency for Public Transport.

Discussions with officials from Windhoek highlighted a range of needs:

1. Working within the framework provided by the SUTMP, partnering with the government to identify and structure a series of high impact, low investment projects that can help the government make incremental progress towards their ultimate objectives 2. Strengthening institutions through capacity-building initiatives and advisory services for the institutional reforms identified in the SUTMP 3. Assisting with policy and regulations development. In particular, issues of network classification, road design standards, and traffic management practices need attention 4. Assisting with the development of a parking management policy and plan, possibly through a public-private partnership

Gaborone, Botswana The Botswana delegation included two participants, from the Ministries of Transport and Finance. The World Bank is already helping Gaborone address challenges of congestion through its ongoing Botswana Integrated Transport Pro- ject (BITP). The project involves the implementation of an urban road improvement program in Greater Gaborone city that aims to solve the urgent urban congestion along major city roads and at intersections by introducing modern and ad- vanced planning, design, and implementation techniques.

The project also includes the development of the Greater Gaborone Transport Master Plan (GGTMP). This work is nearing finalization and will provide an important informant for the development of a more substantive urban transport support project for Gaborone.

The delegates from Botswana highlighted the following needs:

1. Increased capacity building and institutional strengthening support, perhaps in the form of a “mini-LUTP” for officials in Gabarone City Council and other ministries in the government

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2. Support for a program addressing pressing challenges in the public transport sector 3. Support for addressing issues of road safety

The Bank agreed to pursue discussions related to these areas of support through the ongoing BITP.

Harare, Zimbabwe The Zimbabwean delegation consisted of five officials from the Ministries of Local Government, Transport and Finance, and two officials from the Ha- rare City Council. The World Bank is currently finalizing a program of technical assistance (TA) to the transport sector in Zimbabwe delivered through the ZIM- REF multidonor trust fund projects’ Capital Budgets TA program. This support focuses on policy advice to the national government and does not directly address urban transport.

Zimbabwe has also developed a National Transport Master Plan (2017) with the support of the African Development Bank. While the plan takes a broader view of Zimbabwe’s transport needs, it also makes a range of proposals for urban transport specifically, both in terms of infrastructure investment and policy proposals. These proposals form a good starting point for a more detailed consideration of the needs in Harare and were usefully supplemented by the discussions held with the delegates from Zimbabwe:

1. Harare’s master planning is woefully out of date and urgently needs revision. The Harare City Council has reached out to the Bank on two prior occasions to discuss opportunities for support in this regard and will welcome a project to address this. 2. Harare has multiple needs. The ongoing financial crisis has left the city with extremely limited resources to attend to basic traffic and network management requirements: traffic signal upgrades and maintenance; line markings and signage; upgrading and maintenance of public transport facilities; urban road network maintenance; and street lighting installations and maintenance. Basic city services, such as street cleaning, refuse re- moval, and drainage infrastructure maintenance has also suffered over the years. Remarkably, and to its credit, the government has to a large part been able to “keep the lights on” despite the significant challenges it faces. A program of support for these basic needs will go a long way towards providing relief in Harare.

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3. Many parts of Harare endure crippling congestion in peak hours. The city is growing rapidly but has not been able to keep pace with the increasing demands being placed on intersections. Power outages and maintenance challenges have also impacted on signalized intersection performance and a solution urgently needs to be found. At the same time, the expansion of the signal network is urgently required because many un- signalized intersections and traffic circles have long since reached capacity during peak periods. 4. Harare’s public transport services, in particular, would benefit from reforms and investment. Public transport is almost exclusively informal and the regulatory environment (permitting and licensing in particular) is over-complicated, while planning for public transport is very limited. 5. Harare is in the process of developing a public transport policy that its representatives kindly shared with delegates at the conference for discussion and learning. The Bank could make a very useful contribution to their initiative by providing technical support and comments to help refine this policy and to support it by developing an implementation strategy. 6. Notably, Harare has made some strides in the area of parking management, having recently piloted a program of private sector contracting to manage inner-city parking. Harare City Council representatives gra- ciously described their experiences and challenges with implementing this contract, providing valuable practical insights to workshop participants. However, a concrete policy guiding this positive initiative has not yet been developed. Here too, the Bank’s expertise could be leveraged to assist Harare in furthering their efforts.

The Bank is currently engaged in a small project in Harare to produce a sta- tus quo report to obtain a more detailed picture of the situation in Harare and to keep lines of discussion open with the Government of Zimbabwe. This work, in conjunction with the outcomes from discussions at the LUTP workshop, can inform a more substantive engagement with Zimbabwe.

Another important aspect to note is that Zimbabwe will host the upcoming SSATP Annual General Meeting in November 2019. This event offers a prime opportunity to discuss an engagement strategy on urban transport with officials from Zimbabwe, building on what was developed through these recent initiatives.

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Maseru, Lesotho The Lesotho delegation included three officials from the Ministries of local Gov- ernment, Public Works and Transport and Development Planning and two officials from Maseru City Council.

The Bank has been in an ongoing dialogue on urban transport with the government of Lesotho since July 2018, when the first LUTP mission was held. Meetings held during that mission, particularly ones with representatives from the Maseru City Council, highlighted a keen interest in pursuing a specific program to address issues of worsening congestion and rampant growth in the informal transit sector that the city has been struggling with.

The Bank is currently implementing the Lesotho Transport Infrastructure and Connectivity Project (TICP) that focusses on rural connectivity infrastructure. The TICP will also fund the development of a National Transport Master Plan for Lesotho that will include consideration of urban transport issues. The Maseru City Council had expressed concerns that this effort, while welcome, may not provide the level of detail they require.

In 2011 the World Bank and the European Union supported the development of the Maseru Urban Planning and Transport Study that recommended several investments to address urban transport concerns over a 20-year time horizon. However, only limited progress towards implementation of these recommendations has been made and aspects of this plan now need to be revisited given the time that has passed since its completion. Consequently, subsequent discussions with officials in Lesotho favored the possibility of reviewing and updating this plan through the TICP.

Beyond this, specific needs highlighted by the delegation from Lesotho at the LUTP workshop include:

1. Helping to prioritize and implement actions to alleviate congestion 2. Reforming and organizing public transport to improve efficiency and quality 3. Improving conditions in and around transit facilities and in the city core 4. Organizing informal trading in the city center and developing market- places 5. Improving conditions for pedestrian mobility, accessibility, and safety 6. Improving parking facilities, management, and regulation in the city center

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To this end, the government of Lesotho’s Ministry of Development Planning sent a letter to the Bank requesting support on these six points. The letter re- quested that the Bank send a mission to Maseru to help specify the details of a support program to address these issues. The Transport Global Practice is working with Lesotho Country Management to identify the best modality for respond- ing to this request. Lusaka, Zambia The Zambian delegation consisted of five officials from the Ministries of Devel- opment Planning, Local Government, Finance, and Transport, and two officials from the Lusaka City Council.

The Zambian government has recently completed its National Transporta- tion Master Plan, released in 2017. The plan highlights a range of reference projects in the urban transport and public transport sector, which were either in planning or under implementation when the report was finalized. The plan also lists a series of “mandatory” projects – those projects that should be implemented irrespective of the scenario selected.

These projects, as well as the scenario-specific, or “unique” projects, make up an ambitious program of investment in the transport sector in Zambia. In total, the plan identifies 111 projects with an estimated investment cost of nearly US$19 billion. At least US$2 billion is for projects in urban areas (roads/rail/public transport).

In terms of urban transport projects already under implementation, Zambia has US$46 million in projects underway, the majority of which are concen- trated in Lusaka city. These are almost exclusively urban roadway paving, upgrading, and new build projects.

Such massive investment is, unfortunately, taking place without substantive long-term planning for urban transport, and the report highlights the urgent need for the development of both Urban Transport Plans and Public Transport Plans for major cities in Zambia.

This need was also highlighted by the delegates from Zambia, who in discussions at the event noted that Zambia needs support in the following areas:

1. The development of comprehensive urban transport and urban development plans for major cities

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2. Planning for public transport improvements 3. Assistance with the development of design standards and guidelines for urban transport infrastructure 4. Assistance with structure planning for institutions and regulatory reforms 5. Capacity-building programs to support the urban transport sector

The World Bank is currently supporting Zambia with the implementation of their Zambia 8000 rural roads program, through the Zambia Improved Rural Connectivity Project. The Bank will explore, with this project as the platform, the best modality for supporting Zambia with its urban transport reform agenda.

Lilongwe, Malawi The delegation from Malawi consisted of three officials from the Ministries of Fi- nance, Local Government, and Transport, along with two officials from the Li- longwe City Council. The World Bank is engaged in developing both rural roads and regional interconnectivity (Nacala Corridor Regional Trade Project) with the Government of Malawi.

Malawi has a National Transport Master Plan, and in terms of urban transport, Lilongwe has had an Urban Transport Masterplan developed. However, as is the case with other cities in attendance at the workshop, its government has struggled to implement the recommendations due in large part to a lack of funding. The Lilongwe City Council is also heavily reliant on the central government for routine maintenance and upgrading projects, and has very limited resources to undertake any significant programs on its own. Much responsibility for roadworks falls to the Malawi Roads Authority, with funding coming from the Malawi Roads Fund. The city government does not contribute any capital to project costs, only covering its project-related administration costs.

Key challenges identified in discussions with officials include:

1. The city government is seriously underfunded, due in part to its inability to collect sufficient property taxes to cover costs. Lilongwe’s land management and cadastral systems are in dire need of reform. This, along with a program to reorganize land use planning and to streamline the number of state entities involved in land management, will assist government with revenue collection, bolstering its ability to deliver on its mandate. 2. Malawi also suffers from rapidly worsening congestion, exacerbated by its unique urban form. In the 1970s, the government built a new city

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LUTP Livingstone, Zambia - May 2019

center away from the historic town. This action, along with rampant, largely uncontrolled and unplanned development, has resulted in sprawl, long travel times, and rapid motorization. 3. Systems to manage permitting and registration of motor vehicles have recently been improved with World Bank support, but government also needs assistance with managing public transport permitting and regulation. Public transport in Lilongwe is almost exclusively informal, with a wide variety of vehicle types involved in the trade. Of specific concern to the government is the rapidly growing prevalence of “boda-boda” motorcycle taxis. 4. While the Urban Transport Master Plan calls for the establishment of an urban transport authority, no progress towards implementing this recommendation has been made.

Kampala, Uganda A small delegation from the Ministry of Works and Transport and the Kam- pala Capital City Authority in Uganda also participated in the workshop, despite Kampala not being in Southern Africa and not being part of the original group of six cities selected for participation. The delegation was invited by the Bank in support of an ongoing dialogue between the World Bank and the Govern- ment of Uganda on BRT development in Kampala.

As a result, discussions with the Kampala delegation were brief. Although they were active participants in all the sessions, their interest naturally centered on the issues pertaining to public transport, BRT, and informal transit reform. The delegation highlighted the following as areas of interest:

1. Because Kampala is in the process of planning a BRT system, their primary concerns included specific support on detail design and planning issues, and understanding the risks, institutional structuring, and state resourcing involved in BRT systems. Officials were concerned with their level of preparedness for the undertaking and expressed wariness of the potential risks and pitfalls of BRT systems experienced by other countries. 2. Kampala officials expressed a desire to participate in further capacity-building opportunities related to the developments in Kampala. 3. Officials expressed interest in exploring in more depth the detail related to case studies on informal transit reform and management in Cape Town and elsewhere in South Africa.

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Appendix C: Workshop Participants

Country Title First Name Last Name Ministry/Department/Organization Designation Email

Lesotho Mr. Moeko Johan- Maboee Maseru City Council Town Clerk & Chief Executive [email protected] nes

Ms. Relebohile Lebeta Ministry of Local Government and Commissioner of Lands [email protected] Chieftanship Affairs Mr. Khasapane Kikine Ministry of Public works and Trans- Manager of Road Network [email protected] portation - Roads Directorate Planning

Ms. Mafusi Monahali Ministry of Development Planning - Economic Planner [email protected] Project Cycle Management

Ntsoaki Matobo Maseru City Council Director of Planning & Devel- [email protected] opment

Malawi Mrs. Catherine P. Kulemeka Lilongwe City Council Chief Town Planning Officer [email protected]

Mr. Daudi Chinong'one Ministry of Finance, Economic Plan- Economist [email protected] ning and Development

Mr. Cleaverson Nyando Lilongwe City Council City Engineer [email protected] Mr. Lukes Kalilombe Ministry of Local Government Director (Planning and Policy) [email protected]

Mr. Kelvin Mphonda Ministry of Transport Director of Roads [email protected]

Namibia Mr. Clarence M U Rupingena City of Windhoek Strategy Advisor: Smart Cities [email protected] and Transport Mr. Pierre van Rensburg City of Windhoek Strategic Executive: Urban Pierre.vanRensburg@wind-

and Transport Planning hoekcc.org.na

Zambia Mr. Mulele Maketo Mulele Ministry of National Development Director [email protected] Planning

Mr. Lipher Sibundonga Lusaka City Council Assistant Director of Planning [email protected]

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Mr. Arnold Changwe Lusaka City Council Assistant Director of Engineer- [email protected] ing

Mr. Muleba Kambafwile Ministry of Local Government - Physi- Principal Planner - Develop- [email protected] Shadreck cal Planning ment Control

Mr. Crane Muleya Ministry of National Development Director-PIPD [email protected] Planning

Mr. Webby Chisala Ministry of Finance (Budget Office) Budget Analyst [email protected]> Mr. John Chiluwe Chiluwe Ministry of Transport Assistant Director Transport - [email protected]; eter-

Roads and Railways [email protected]

Zimba- Mr. Evans Muringani City of Harare - Traffic Management Chief Engineer [email protected] bwe and Roads

Mrs. Judith Mujegu City of Harare - Transport Planning Chief Traffic And Transporta- [email protected] and Policy tion Planner

Mrs. Cathrine Mutamba- Ministry of Local Government, Public Chief Town Planning Officer- [email protected] nengwe Works and National Housing Transport Mr. Marone Tatenda Pasipamire Ministry of Transport and Infrastruc- Deputy Director: Roads [email protected] tural Development Maintenance

Mr. Bernard Mupuriri Ministry of Finance and Economic De- Director: Implementation and [email protected] velopment Monitoring

Uganda Mr. Rogers Kisambira Ministry Of Works And Transport [email protected]

Mr. Gerald Harry Ekinu Ministry Of Works And Transport Principal Transport Economist [email protected]

Mr. Jacob Byamukama Kampala Capital City Authority Deputy Director Roads Man- [email protected] agement Bot- Mr. Tshepiso Bogatsu Ministry of Finance and Economic De- Economist (Planning Officer) [email protected]; bo-

swana velopment [email protected]

Mr. Boikhutlo Modukanele Department Of Road Transport And Director [email protected] Safety

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Appendix D: Participant Feedback

Low High 1 2 3 4 5 No Opinion

Extent to which the information presented is new to you 1 1 9 11 8 1 Extent to which the content of this course matched the announced ob- 0 0 4 6 21 0 jectives and target audience Overall quality of the on-site sessions 0 0 2 18 10 0 Overall quality of supporting materials 0 0 1 13 16 1 Extent to which course helped improve your understanding of urban 0 0 2 11 18 0 transport in all relevant dimensions Extent to which course helped improve your confidence to work within a 0 0 4 13 13 0 multidisciplinary team in charge of urban transport planning

Extent to which course helped improve your confidence to develop ur- 0 0 7 13 10 1 ban transport plans, programs, and projects that are more integrated and sustainable Extent to which course helped you feel more motivated to take action to 0 0 1 7 22 1 improve urban transport plan in your city or community

Extent to which this course helped improve your relationships with other 0 0 3 15 13 0 individuals or groups

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Which modules did you feel were the most important? DAY 1: Institutions and policy 12 DAY 2: Strategy and implementation 10 DAY 3: Financing and PPPs 15 DAY 4: BRT and Informal Transit 10 DAY 5: World Bank and development partners 1

Specific comments: Overview of MFD and PPPs in urban transport; Financing urban public transport; Parking financing and management; All the modules were extremely important; Institutions and policy; Case studies; Informal Transit; BRT Dakar Bus Financing; All; Dakar Case Study; BRT; Informal Transit; BRTs Projects in Africa The most important were modules in Cluster 1, 2 and 3. These opened my mind on the importance of not isolating Transport Planning from other issues in the city; Modules on Urban Transport Planning; Financing (USPs? And PPPs) and BRT; Institutional challenges in cities; Urban Transport Policies; SSATP OP3; Strategic Planning; Project Identification; Appraisal and Implementa- tion and MFD and PPPs in urban transport and BRT; BRT, Informal Transit, Financing, Urban Transport, Urban Transport Policies; Institutions and Policy; Financing and PPPs; World Bank and Development Partners; Strategic Planning process;

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Alternatives to creating a new agency/authority/funding Cape Town pilot project Urban transport policies; Parking financing; and management; Strategic Planning; PPPs in Urban Transport; Lamata case of Cape Town, Maseru; Issues related to reforms in the public transport sector; Overview of BRT; Informal Transport; Urban Transport Policies; Strategic Planning; Regional Urban Transport challenges; The case studies which gave us an in-depth understanding of issues; Case studies; Strategic Plan; BRT; MBT Reform; Financing Urban Transport; Day 1 - 4 presentations; Urban transport policies; Strategy and Implementation; Institutions and Challenges; Financing Urban Public Transport; The most important were modules in Cluster 1, 2 and 3. These opened my mind on the importance of not isolating Transport Planning from other issues in the city; The modules in PPP and Financing, Strategy and Implementation; All Strategic Planning; Parking Financing and Management; 1 and 2; Strategic Planning; Case Studies; Urban Transit policies; BRT; Informal transit;

Which modules did you feel required more detailed technical information? DAY 1: Institutions and policy 5 DAY 2: Strategy and implementation 5 DAY 3: Financing and PPPs 11

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DAY 4: BRT and Informal Transit 7 DAY 5: World Bank and development partners 0 Specific comments: Strategic planning process; MFD and PPPs in urban transport; Financing urban public transport; Sustainable funding for urban mobility; Overview of BRT Projects in Africa Dakar Bus Financing Case Study Input of more technical information would require more time to be availed, in which case for all; Information was detailed; The modules on Financing of BRT, finance is very critical; MFD and PPPs; strategic planning; institutional challenges in cities; Urban Transport policies; SSATP DP3 and project Identification, Appraisal and Implementation; BRT, Informal Transit; Strategy and Implementation; Financing Urban Public transport; Sustainable funding ; alternative means of integrating and harmonizing overlapping responsibilities within government departments; PPPs in Urban Transport; Project Identification, Appraisal and Implementation; Institutional challenges in cities; Preparation and components of transport policies; Information related to the reforms/improvements in the public transport sector; Overview of MFD/PPP methods and practices; How to deal with informal transport - needs to be beefed up Regional Urban Transport policies;

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Infrastructure; Informal transit; I needed more information on Financing and PPP especially analysis of Financing modules in PPP projects; Behavior of intersections should be included; PPPs; BRT Studies;

Was the time required for the self-study adequate? Yes 16 No 12

Specific comments: A little more time would help; It was adequate: even though to really ... Enough to read and understand them fully; The time was not adequate for me. Maybe because I received the modules late. Not adequate, received materials later; The time was not adequate, I would have liked to receive the materials before the workshop; It was not adequate because it had to be done while we were still at the office, where we still have other engagements; In a way but more time could have been provided! The time for self-study was not adequate especially on case studies. Participants should have been allowed to read through case studies, than assuming that they read at night. Never adequate due to work related issues;

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Any additional suggestions or comments on the self-study material? Each city and country should develop their own case studies - to tell their own stories; Power Point presentations need to be more clear, they aren't easy to follow unless the presenter is present to explain; The approach to share the Self Study materials in advance was very good and gave us an insight of the workshop lessons; There could be more detailed discussions on impacts of climate change and how we can build climate resilient transport infrastructure; In the future it would be better to send the material early to provide adequate time for use of the materials; Make available more materials and resources, connect to appropriate resources; It could be user friendly to have one module in one cluster; No comments; It could be user friendly to have one module in one cluster; It would be important and helpful that the loose studies are prepared by respective countries; That they are presented at the workshop and discussed while still fresh; The cities should come to the conference with the major questions that need to be answered in the conference; More coverage and more time required; N/A Some versions were saved in higher version. Made it difficult to download; The materials were relevant to the program; The choice of case study should be updated to present situation; N/A; The idea of self-study before commencement of the workshop a little bit challenging given that office assignments provided little scope for time to enjoy with the materials; Some versions were saved in a higher version. Made it difficult to download; Send at least 2 weeks before start of the workshop;

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How would you rate the following? Specify: 1 2 3 4 5 No opinion Case studies 1 6 11 12 Group exercises 2 1 8 10 6 3 Site visits 2 1 2 7 5 11 Presentations 14 15

Overall evaluation of the course: Did you find the course useful for better discharging your responsibilities?

Yes 27 No 0 Other 1 Comments: Certain aspects It has made me become aware of inves(tment?) e.g. I always thought to solve problems of congestion in our cities is through provision of expressways and other ….. Now I understand it’s the smaller, less expensive issues we need to attend to solve congestion;

What (if any) aspects of the course WORKED WELL? All All the aspects of the course worked well; Setting up institutional arrangements and crafting strategic plan; Formalizing para transit or growing it to a level where it can take its rightful place; Facilitation of out-of-pocket allowance;

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Sharing of the presentations and case studies in advance; Coordinated program; Inclusion of site visitations in the program; Presentations were comprehensive; Case study and module circulation before the course enabled prior reaching and preparation which improved …..discussions; Interactions amongst participants; Presentations were quite academic, to tickle the mind; The presentation on Parking and BRT; The presentations were of good quality/adequate and presenters have a great understanding of their areas of speciality; All; Case studies; The linking of the case studies and the presentations; Formulation of the Frameworks; Presentation from Cape Town City pilot project; The aspects of the course worked well especially Strategic Planning; Presentations by Brian, Justin Coetzee, and Philippe were most informative and relevant; Presentations were well researched and presented, thereby able to stimulate discussions; Presentations on Challenges, Policies and Strategic Planning; Overview of BRT as a solution to Urban Transport challenges; Discussions and deliberations which were conducted in an open manner such that participants could freely air their views on the subject mat- ter; Conference facilities were good; Case studies; All other things worked well; Above all the course worked well; Presentations; Study Material;

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I would be very happy, well, and good; Case studies and presentations; Case studies; Parking policies;

What (if any) aspects of the course DID NOT WORK well? None The part on NMT and vulnerable roadusers was neglected; Poor facilitation in terms of out-of-pocket allowance; We weren't given a chance to choose our favorite flights; We weren't given a chance to choose our accommodation preferences; Consequently, we were heavily restricted in the logistical arrangements; Group communication platform (i.e. Watsapp group); Presentation of some of the case studies would improve the discussions; Extent of coverage and "do's" and "don'ts" as way of advice; Issues of NMT were not discussing in detail but only referred to; Group work/discussions were not done; Site visits; The case studies were not conclusive enough; There was need to make the presentations on the case studies first before discussions; Issue of sustainable funding; Practicability aspect of the proposed solutions; Rushed responses and cutting of delegates when they are making a contribution by Aday; Discussing case studies without prior presentation of the case study itself; None

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Facilitation for participants was not handled well; Next conference should have participants get some out of pocket to manage incidentals; Facilitation to the participants in form of contingencies was lacking. This is not well; As all human needs cannot be met at a hotel - we need to have contingency funds to help us cope with day-to-day needs. So next time, provide. Case Studies; I would be disappointed; The reading materials beforehand; Case studies;

What advice can you give us to improve courses of this kind in the future? The course is very enlightening and very important. It requires a little more time and a little more detail; Give participants freedom to choose the best logistical arrangements; Avail participants a whole range of options to choose from; Consider setting up participants group communication platform for continued discussions and engagements; Extend the time of workshop coverage to 2 weeks; Let Case Studies be discussed mostly by participants instead of the facilitator dominating; There is need for group discussions to provide an opportunity for participants to fully participate in the sessions; It should be slightly broader to include a few other ….... Such as Tourism and Commerce. Also to secondary cities (e.g. Ndola and Kitwe and Livingston); Time allocated not enough. That made discussions be curtailed before finishing the discussions; Touch more on alternative source of sustainable funding; Tailor make solution to the African problems and the nature of our transport landscape; The cities should prepare and present the case studies; This forum should meet again to share knowledge and see how we have implemented issues discussed;

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Each country/city to present its case so that it opens door/floor for inputs; To avail the case studies before the workshop (a week or two before); Make it a bit longer, some issues were not discussed; A better hotel which is not infested with mosquitoes; Facilitation during transit should be provided in terms of contingencies; We should be given options e.g. flight choice rather than having long journeys which are not facilitated; It should be slightly broader to include a few other ….... Such as Tourism and Commerce. Also to secondary cities (e.g. Ndola and Kitwe and Livingstone); Improve on timing for case studies; Let case studies be presented by respective countries where appropriate; So far so good; Look into enhancing the logistics arrangements including the review of per diems; Training can also take place in cities where participants will appreciate public transport systems;

What do you plan to share? Issue about urban public transport; how to improve - and the concept of BRT: what it entails - how ready are we? Institutional arrangements; Parking policy; Para-transit transformation, Flexible Approach to BRT; Urban transport institutional and regulatory frameworks; Case studies - advantages, successes, …...; Financing models; How to deal with traffic congestion and BRT; Parking issues; Information on Urban Transport Planning and Policy; Urban Transport Management; Improvement of Public Transport; Financing (USPs? And PPPs) BRT; Informal Transit; Urban Transport Policies;

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Development of a sound Transport Master Plan; All the materials; Course material; A report that I will produce; Parking Financing and Planning; Urban Transport Mobility; The need for conducting comprehensive studies on the root causes of congestion in Lusaka; Modernizing informal transit;

With whom? Management of Lilongwe City Council + other stakeholders whenever the opportunity arises Permanent Secretary, Ministry of Works and Transport; Director of Transport, Ministry of Works and Transport; Engineer in Chief, Ministry of Works and Transport; Ministers and …...... Permanent Secretary - Budget and Economic Affairs, Ministry of Finance; The Director Budget, Ministry of Finance; Budget Office staff (70) through a technical briefing; Ministry of Housing and Infrastructure Development; Political leaders; Senior government leaders in local Government and other Ministries The Town Clerk, Director of Works and Council Ministry of Local Government management - approximately 20 management staff; Council Management staff; City bosses; Stakeholders - Combi Owners Associations, Passenger Associations, Policy makers; Supervisors back at work; Acting Chief Director, Department of Economic Planning and Development; Chief Economist, Economist in the Department;

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National Strategy Office; Ministry of Finance; Ministry of Transport; To share with my colleagues about the topic; Management at the Council for a decision; Department of Administration in Council - It is responsible for taxi ranks; Department of Works and Transport is responsible for upkeep of roads; Taxi Associations for the reforms in the sector; I would share the land use planning part of this course with my Ministry PS so that he could support the city during Master Plan preparation and implementation; Share case studies with colleagues so that we can all learn from various exercises and collectively apply such knowledge to develop local solutions for our cities; Policy issues with other cities apart from the capital city; My subordinates and colleagues from Procurement; Colleagues and major shareholders; At the office - staff at my department about 6 staff and others in the Ministry; With my supervisors (Permanent Secretary and colleagues); Management

How do you plan to use what you had gained from the course? Through back to office report Technical input in the course of my work I will engage active discussions with the Ministry of Transport to see how best we can manage our public transport and make it more attractive for daily trips in our cities; Policy development; Institutional modification; Technical Input to Transport Projects and Urban Development projects;

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Through a report I will prepared on this workshop; Through a technical briefing; Using the knowledge and information gained from this workshop; Institutional and Regulatory reviews; Urban Planning Master Plan preparation; Transport Plan preparation; Monitoring and evaluation of Plan implementation; To do a comprehensive work covering all the details learned to come up with a comprehensive plan to deal with traffic congestion; Formulate Policy issues relating to their regulations; Propose programs for possible implementation; To facilitate improvement of Urban Transport; Planning; Land Use Planning; Transport Management and many other aspects of urban transport falling under the mandate of the Council; In planning Urban Transport; In coordinating Urban Transport planning; In supervising Urban Transport; Complete our Urban Public Transport Policies on Parking, Transport, Transport Impact Assessment; Engagement with other stakeholders to strengthen our Urban Mobility System; It will help to evaluate project proposals from the cities, especially roads projects - to ensure all aspects learned are properly taken care; In providing analysis to Urban Transport; Our master plans are at draft stage so it will be important to relook at them and see to it that all aspects of a sound policy are included; By implementing the said plans; Report back for implementation; To influence policy makers on how to improve on the various transport sectors; To integrate transport components into the National Spatial Strategy currently under preparation; At policy level, to come up with proper plans and policy to improve urban mobility; Sharing electronic courses and discussing over a half-day workshop;

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Forming a technical team to deliver Public Transport; Transforming the taxi industry; The policies of policy and implementation; Implement some of the ideas; Share the materials with colleagues; Table some of the policy decisions to top management; During Project Planning and Implementation; Stakeholder consultation idea; Lagos - existing infrastructure improvement/enhancement; As a new person in the country will manage to contribute to any discussions and plans back home going forward; this was an eye opener; Recommend the World Bank to conduct a study on Lusaka's urban transport; Renewing of urban transport studies under Diagnostic Studies which were commissioned under a World Bank funded project;

Would you recommend this course to others? Yes 30 No 0

Any other comments or suggestions? Better logistical arrangements need to be considered; Include site visits to learn practical e.g. to a congested area in a city; The organization was good; Keep going around the continent spreading the good news. We need more pilot projects because this are a very big undertakimg that cannot be done at a go;

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LUTP Livingstone, Zambia - May 2019

Appendix E: Case Studies

Maseru Urban Transport Problems In January 2018, Maseru City officials were examining results of a Maseru Urban Planning and Transport Study conducted in 2011 in light of deteriorating traffic congestion to determine what needed to be done. This study was commissioned jointly by the Ministry of Planning, Works and Transport (MoPW&T) and Ma- seru City Council (MCC), with the support of Development Partners, to provide an integrated Urban Planning and Transportation framework to guide the city’s development as balanced, sustainable, and effective to a planning horizon of 20 years (2011-2030). Between 2005 and 2015, the share of public transport had declined from 74 percent to almost 50 percent with a significant increase in taxi (4+1) share (from 6 percent to over 25 percent). As a result, congestion had wors- ened, especially during morning and afternoon peak periods, road accidents had increased exponentially, and pollution had become a major concern. The Transport Study had recommended several investments over a 20-year time horizon. City Officials were debating the merits of the investment plan and how best to prioritize the investments it recommended.

City Context Lesotho is a small, mountainous, and land-locked country, surrounded by its much larger neighbor, South Africa. It is a lower-middle-income country with a population of approximately two million inhabitants. Maseru is the capital, as well as its largest city. The city has a population of 300,000 with over 350,000 in the total Maseru Planning Area (MPA) and is growing at over 5 percent per annum, largely due to mass in-migration from the rural hinterland. Maseru is a dis- tinctly poor city. Large sections of the population suffer abject poverty, having exchanged rural subsistence farming for sporadic, low-paying, urban informal employment.

Previously a British protectorate, Lesotho gained its independence in October 1966. It is an institutional monarchy, ruled by a King as head of state, and gov- erned by an elected 33-member Senate and a 120-member National Assembly. Le- sotho held elections in June 2017 for the third time in five years. This led to the formation of a four-party, coalition government. In keeping with recommendations for key governance and security reforms made both by the Commonwealth and the Southern African Development Community (SADC), the government of

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Lesotho has committed itself to engaging in multistakeholder consultations to inform implementation of the reforms.

Economic growth for the last three years averaged approximately 3 percent, driven primarily by textile manufacturing and agriculture. The performance of textile manufacturing was underpinned by the Rand/dollar depreciation, while agriculture experienced a strong recovery following severe droughts in 2015 and 2016.

Spatial Structure and Land Use Maseru’s urban form is highly dispersed. Its population has grown intermittently over the years, with periods of rapid growth upwards of 6 percent per annum followed by periods of constrained growth. The city’s population has expanded at over 5 percent per annum for the past decade despite high mortality rates and out- migration, primarily as a result of ongoing in-migration and is projected to double by 2030. At the same time, the built-up area of the city has been sprawling out- ward for a half century or more. Indeed, the density of development has declined over the past generation and sprawl is ongoing.

This sprawl has adversely impacted the city as a whole, particularly the poor population. The poor, newly arriving from rural areas, tend to locate in informal settlements in the city’s newly urbanizing outer districts. These are far away from employment, education, health care, and other opportunities associated with urban life. Access to these opportunities is constrained not only by travel distance and time, but also by cost and affordability of whatever public transport exists.

This pattern of development is as a result of land allocation and development approval processes that are administered by traditional tribal leaders. Building plots for private homes are usually sized to enable backyard gardening (400-900 m2) by informally-employed, newly-urbanized residents; nominal land values at the periphery are low in the absence of commercial development pressure and effective regulation and enforcement. Maseru’s gross Urban Area Density is thus extremely low even by African standards, about 2,220 persons per km2 (2006).

Gross Residential (Built Area) Densities vary significantly among fringe peri-urban areas settled by poor recent migrants, closer-in wealthy neighborhoods with larger homes and plots, and moderate density neighborhoods with a high proportion of Malaene, tiny attached houses for rent rather than ownership. Given the

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LUTP Livingstone, Zambia - May 2019 absence of any significant multistory housing, there are no high-density, walkable residential areas.

Development sprawl has served to entrench and exacerbate poverty. The very poor, frequently new migrants, generally located on the periphery without adequate, affordable public transport, are denied access to opportunities and basic services; the poor are forced to trade-off between food, transit fees, and walking long distances to get to work and other essential facilities and services.

Urban Transport Situation - Institutional and Service Context Institutional arrangements for transport in the city are fragmented and character- ized by overlap and duplication. The main agencies are:

1. The Ministry of Public Works and Transport is responsible for the legal and regulatory issues pertaining to transport in general. Within the ministry, the Department of Planning is responsible for the overall strategic transport planning of the ministry. 2. The Ministry of Local Government and Chieftainship is responsible for land allocation, in coordination with traditional chiefs. The Department of Lands, Surveys, and Physical Planning (LSPP) and the Deeds Registry are key departments within the ministry and are respectively responsible for planning, parcelization, and registration of land in Lesotho. 3. The Traffic Department is responsible for the issuance of driving licenses, vehicle registration, road transport permitting, regulation of public transport operations, licensing of public transport vehicles and drivers, au- thorizing routes and fares, enforcement of regulations and operations, and other such activities as provided for by the Road Transport Act; 4. The DTT (Department of Traffic and Transportation) is in charge of urban transport policy and regulations, including: a. Developing transport legislation; b. Developing transport plans, policies, and codes; c. Regulation of fees and licensing; d. Developing and promulgating road safety policies; and e. Safety coordination; 5. The MCC is responsible for local roads, including construction and maintenance; 6. The Roads Fund (Ministry of Finance) is a separate body administering dedicated financial resources (fuel levy, licensing fees, border toll-gate fees, and so forth); financing and audit for major roads construction and maintenance;

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7. Traffic police are in charge of enforcement, traffic management. 8. The Lesotho Land Administration Authority and Land Survey and Physical Planning have the responsibility for land use planning.

Due to contradictions between legislation for planning and local government, and given historical responsibilities for planning, the lines of authority and responsibility between the LSPP and the MCC are blurred. This fragmentation limits the possibility of efficiently developing and implementing multimodal plans because there is no single authority and approving level for either:

1. Planning, investment, regulation of all transport modes; 2. Designing complex transport solutions which require multimodal infrastructure improvements as well as service restructuring; or 3. Traffic management.

Lack of clear mandates, overlapping responsibilities, and multiplicity of departments and agencies responsible for planning, regulating, managing, and financing construction have made it difficult to address the growing problem of worsening congestion and related negative externalities. The challenges are familiar, not new, and common to most growing cities in the region.

All these institutions are under-staffed to meet present demands. When considering the scale of needed planning, land registration, and development, these institutions are desperately under-staffed and lack appropriate skills in specific fields (for example, Urban Design, Landscape Planning, GIS utilization, Social and Economic Planning, Traffic Operations Management, and so forth).

In addition, the MCC cannot remain totally dependent upon central government budgetary inflows. Maseru lacks a tax-base sufficient for the needs placed upon it. The existing system is a valuations-based property tax applied only to “gazet- ted” areas or less than one-third of properties in the city. This system is viewed as inappropriate to the needs and capacities of Maseru. Land values in the city are low and much of the land is not legally owned, and hence such a system cannot provide the required tax base. The MCC’s attempt to update tax rolls has been less than successful. Only about 15 percent of such taxes, based on old valuations, are actually collected, and the legal base for enforcement of collection is report- edly questionable. Also, service fees have very low collection rates. There is an urgent need to reassess, define, and establish an appropriate, workable, and col- lectable revenue and tax system for both current and capital accounts for Maseru.

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Transport Service Context The primary Maseru transport mode, particularly for the poor, is walking, with almost half of daily trips made by walking, followed by public transport (40 percent) and the rest by private vehicle (10 percent). Walking conditions are far from adequate despite the large number of pedestrians. Most sidewalks are in the city center but are often noncontiguous. They are generally inadequate in scale, poorly maintained, and overgrown, and are encroached upon by hawkers and so forth. Intersections are poorly designed for pedestrians and crossings are unpro- tected.

Due to the lack of dedicated pedestrian facilities, pedestrians dominate the road reserve, placing them at risk and hindering traffic flow. The public transport system has poor coverage, and the users must walk far to get to distant boarding stops and from their alighting stops to final destinations.

In total, there are approximately 1,000 km of roads in the city, of which 80 percent is unpaved. Road infrastructure is also designed with low standards and is poorly maintained, with the possible exception of major arterial roads. The road network design is based on rural standards which are inappropriate for an urban environment. There are few urban streets and effectively no inner-city arterial highways. Less than 10 percent of the roads in the city have dedicated drainage facilities. In the CBD, many areas suffer periodic over-flows and flooding. Only a limited portion of the roads have street lighting. Moreover, very little lighting is in place to ensure safety and security in the residential areas.

Road intersections are poorly designed, due to the lack of approach lanes, lack of free left-turn lanes, poor or outdated signal programs (there are only 16 signal- controlled intersections in the entire city), and unregulated parking in the city center. On-street (and on-sidewalk) parking is unregulated and there is a shortage of parking in the city center.

The current public transport (PT) system in Maseru accounts for over 80 percent of all motorized trips, carrying 48 million passengers annually. There are three classes of vehicles; buses (large and small); minibuses; and saloon cabs (4 passengers plus a driver, referred to as 4+1). Buses and some minibuses are used on longer, busier routes, while minibuses and saloon cabs operate in town centers and surrounding villages. The operation of passenger transport is highly concen- trated in few companies even though it is regulated by the Road Transport Board. The PT services are uncomfortable, crowded, and unreliable. Waiting times are

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LUTP Livingstone, Zambia - May 2019 long and a disproportionate share of trips require interchanges, making people pay multiple fares and wait longer.

A “Travel Habit” survey done in 2010 indicated that average monthly household transit expenditures are approximately 500LSL (approximately 20LSL a day), while the median expenditure per household is about 400LSL a month (16LSL a day). This means that, on average, 20 percent of household income is dedicated to public transportation. However, this average is not uniform across different segments of society. The employed poor spend over 25 percent of household income on PT, with many, particularly minimum wage earners, spending about 30 percent. World Bank studies suggest that the percentage should not be more than the 10-15 percent range. The middle class and wealthy obviously spend less than the average on PT meaning that PT is unaffordable for the poorest income households, that otherwise are confined to employment and other opportunities reacha- ble on foot.

Bus terminals in the city center are open lots with essentially no amenities despite significant passenger activity. They are poorly managed and maintained, and public transport vehicles entering and exiting these terminals cause serious congestion in neighboring areas.

• Large buses are operated by the government-owned and operated Le- sotho Freight and Bus Services Corporation (LFBSC). During the ‘60s and ‘70s, public transport utilized “matchbox” buses (wooden passenger frames placed on the chassis of lorries) operated by National Bus and the Lesotho Freight Services Corporations. LFBSC was established in 1987 as an organization taking over from the previous corporations. One of the main mandates of the new organization was to provide public transport in underserved areas of the country. However, declining subsidies and growing operational deficits gradually reduced services, and today, LFBSC services are mainly limited to more remunerative intercity routes. • Saloon Cabs (4+1). The vehicles in this category are regular (saloon) cars with a capacity of four passengers and a driver, hence the acronym 4+1. Entry into the market by the saloon cabs is highly dependent on the availability of licenses which are assigned on a route basis. Saloon cab operators follow the market practice of queuing at ranks or terminals, leaving when full, and then picking up and delivering passengers along the respective assigned route. New entrants have the option of joining one of the owner’s associations on the route, or not.

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• Minibus. The vehicles in this category are minibuses with a capacity ranging from ten to eighteen passengers. The segment operates in essentially the same way as the taxi segment, while the availability of licenses per route is the main factor inhibiting entry into the market.

In the nineties, developments in South African motor vehicle manufacturing prompted introduction of minibuses into the Lesotho market. Companies such as IVECO and Mercedes Benz introduced small passenger vehicles that are a hybrid of vans and larger minibuses. They are not only more comfortable than the larger buses, but also faster because they stop less frequently. Accordingly, increasing numbers of passengers were opting for these hybrids to the detriment of large bus revenue. Since 2006-07, older (10-15 years) used saloon cars have been imported into Lesotho from Japan via Durban at a cost of 30,000 LSL ($2,000) to 60,000 LSAL ($4,000). These cars are being used as shared-ride taxis and have saturated the market, increasing in numbers at over 10 percent annually.

In and around crowded, congested towns, the shared taxis are dominant due to their size and maneuverability. They are licensed to operate within a radius of 10 km of a town center, though there are exceptions in some areas. Operators can obtain a route license for 110 LSL per year, to be renewed on an annual basis; (for minibuses, the route license fee is 180 LSL).

There is a clause in taxi and minibus route-specific licenses that allows an association (or a group of associations’ members from the other end of the given route) to pick-up passengers outside a certain arbitrary radius (usually about 10 km) from the taxi rank specified in the license. In such a case, the same clause would apply on both ends of the route.

The market shift to privately-operated minibuses and taxis from large buses operated by a state-owned enterprise did not result from a conscious decision to de- regulate public transport. Rather, it was an indigenous response to growing demand and commercial opportunity where there was only a limited supply of large buses. Although these “informal” public transport services were originally operated as small enterprises in a regulatory vacuum, over time, a particular model has emerged that meets travel needs, is understood by the users, and is now well- established.

Factors accelerating growth of the “informal” public transport sector include:

1. The perceived opportunity for profits in an unregulated market

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2. Minimal capital investment for small, secondhand vehicles which easily can be financed from savings or small loans 3. Low requirements for business and technical knowledge 4. High unemployment

As is true in most countries, the city attracts work-seekers from rural areas which results in high unemployment, ranging between 24 and 28 percent. This high volume of available workers, along with the lack of any specific job requirements for potential drivers and easy availability of inexpensive taxis has provided a positive incentive for growth in the informal passenger transport sector.

Unfortunately, congestion, the lack of organizational structure, and only loose regulation has gradually reduced earnings in the sector in the past few years. Taxis have proliferated by filling a void left by large-bus services, but they are far from an unalloyed good - in fact, they present clear disadvantages from the per- spective of the public interest:

• Road congestion. Taxis account for almost 50 percent of all motorized traffic on some corridors. Their proliferation has produced severe congestion, particularly during peak periods. • Safety and emissions. Most taxis and minibuses are old, inadequately maintained, and operated for long hours at low speed. Spotty enforcement of regulations on vehicle inspection, driver behavior, and traffic management is common practice in all African cities.

Ownership Structure. The passenger transport business, including the saloon cab, minibus, and larger buses segments, is dominated mostly by individual local entrepreneurs. There is a significant level of competition between these segments and a majority of these entrepreneurs operate as sole proprietors. Ownership is highly dispersed, with most individual entrepreneurs owning no more than one or two vehicles, which they generally rent out to drivers. Anecdotal evidence also suggests that taxi operation is used as a side business by government officials to augment their low salaries. Drivers are paid a fixed monthly salary of about 1,300 LSL ($90). All associated costs, including maintenance and association fees, are paid by the owners. Drivers face a strong incentive to carry full loads of passengers to maximize revenues while minimizing variable costs (notably fuel).

Service Type: There are regular routes using minibuses or taxis between terminals, with on-call intermediate stops, that may be informal and not marked. Point- to-point services with few or no intermediate stops are provided for commuters

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LUTP Livingstone, Zambia - May 2019 and/or from residential areas to markets. Shared taxis also offer “feeder” connect- ors to and from other transport hubs, or transport services from markets.

Regulation. Bus and taxi licenses are issued by the Road Transport Board at an annual fee of 600 LSL for taxis and 1,000 for minibuses. However, many taxis (it is hard to get a specific count) operate without a license and are alleged to be owned by senior officials in government.

Financing arrangements. Vehicles are mainly financed using interest-free loans from personal savings, family, and friends, as well as earnings from operations. Bank finance is rarely used because the banks are reluctant to accept the used, poor-condition vehicles as security for loans, and revenue streams are not suffi- ciently reliable to assure the banks that loans will be repaid.

Organization. In the passenger transport sector, and especially its minibus segment, operators are organized into associations. There are three associations na- tionally, representing the South, North, and Central Regions. Maseru city is contained in the Central Region, which has 35 route associations and 100 members. Each member has 3-4 taxis. There are agreements among some of these associations which cover market restrictions or allocations on common or shared routes. The associations or groups of associations party to the agreement would usually be originating from the opposite ends of the routes in question. The agreements may have been necessitated by congestion given that fares are regulated. The minibus operator then follows the market practice of queuing in the designated traffic ranks and touting along the allocated route.

Despite low car ownership rates (60-70 vehicles per 1,000 population) and limited traffic loads (estimated total of 16,000 vehicles only) the road system is congested as a result of the combination of poor geometric design and an inadequate traffic signal system. Taxis and 4+1s constitute the majority of road traffic throughout the day while the over-all PT system operating mode of on-street competition for passengers utilizes far more road capacity than their numbers alone imply.

The number of vehicles in Maseru has been steadily increasing, leading to height- ened and longer congestion during the day. This is further exacerbated by ineffective solutions that are currently in place as well as the absence of tools to facilitate dispersal of information to motorists. A small number of traffic signals have been put in place to manage traffic but are becoming increasingly inefficient due to their outdated, fixed program design. Preset timing allocating green, amber,

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LUTP Livingstone, Zambia - May 2019 and red times in disregard of prevailing conditions leads, among other things, to increased waiting times, additional fuel consumption, air pollution, and drivers ignoring them.

Planning Efforts Current Maseru development was planned over a generation ago. The plan, the Maseru Development Plan (MDP), was only implemented in part but nonetheless impacted and partially directed the city’s development. The MDP, completed in 1990, guided some elements of the city’s development while major elements have not been implemented. There are many different opinions as to why there was only limited implementation, but many believe it was due to the lack of political will, limited human and institutional capacity, and resource constraints.

Subsequent to the creation of the MDP, various bodies have planned for different city sectors. The Department of Lands, Surveys and Physical Planning (LSPP) has planned and subdivided land in specific areas. The Lesotho National Housing Development Corporation (LNHDC) has planned and developed new residential areas and housing developments. The Lesotho National Development Corpora- tion (LNDC) has planned and developed new industrial areas. Various ministries and public bodies and a few private developers have planned and developed specific developments.

The allocation of residential plots within “villages” by traditional tribal leaders has continued apace. As a result, the city has sprawled into peri-urban areas with unaddressed transportation system performance, environmental, social, and economic impacts. Recognition of these issues spurred the initiative for the MUP&T Study.

Supported by several development partners, the national government prepared a Maseru Urban Planning and Transport Study in 2011 to address city growth. Overall, approximately 300 million trips annually will need to be accommodated by 2030, half of them pedestrian. As the city and the economy develop, motorization rates will increase rapidly and over a quarter of the trips will be motorized. Over 70 million transit passenger trips will have to be provided for annually by 2030, all hopefully on an improved public transport system with reasonable trip times and costs. To address these planning issues, the MDP study was commissioned jointly by the MoPW&T and the MCC, with the support of Development Partners (the World Bank and the European Union), to provide an integrated Ur- ban Planning and Transportation Framework to guide the city’s development of a

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LUTP Livingstone, Zambia - May 2019 planning horizon of 20 years. The suggested “Vision” for Maseru is based on the policy direction laid out in the MCC’s Strategic Plan and in “Vision 2020”.

Strategic action identified in the plan includes:

• Establish an urban development cordon (boundary) to limit sprawl • Prioritize in-fill, densification, and upgrading • Release inner-city land reserves for development • Develop and provide integrated multimodal transportation • Concentrate development along integrated transport corridors • Make Maseru “green” • Extend services and infrastructure to newly urbanized areas • Prepare and implement an integrated local economic development (LED) plan • Mobilize enough financial and human resources to accomplish all of the above.

To cater for these by the planning horizon, the plan identified 69 investment projects within 7 subgroups for the coming 20 years (2011-2030). A summary of the proposed transportation investment plan for the city of Maseru is contained in Ta- ble E.1.

The study proposed:

1. Construction of 25 km of new arterial roads, upgrading and/or widening of an additional 33 km of existing arterial roads, and development or upgrading of hundreds of km of inner core local roads, although at lower standards than for arterials; 2. Development of 70 km of high standard city-scale pedestrian routes and 55 km of city-scale cycle routes; development or upgrading of 350 km city- scale sidewalks; and creation of an additional hundreds of km of inner local sidewalks and cycle routes 3. Creation of 5 public transport termini, 35 km dedicated bus lanes and 450 bus stops 4. Acquisition and operation of approximately 450 buses of assorted sizes in addition to the 250 “15-seater” minibuses that will remain in operation in and around Maseru.

Priorities Officially all of the 69 investment projects being proposed in the study were listed as “high priority.” But the existence of alarming increases in development

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LUTP Livingstone, Zambia - May 2019 and congestion and of limited resources, raised questions about whether some measures are more important than others And what should be the most efficient means to address growing motorized travel demand and related issues?

Discussion Themes 1. Why is the city’s congestion increasing so rapidly? 2. Who in the government "owns" this investment program and is responsible for its implementation? 3. What was the process for developing the strategic investment plan? What alternatives were looked at? Is it implementable, given the financial, human and other constraints? 4. Which of the 69 investment projects that the study is recommending are most likely to help? Which of them could be implemented? To what extent would the investment plan be able to address the urban mobility constraints in the city? Are there other measures that should have been considered? 5. What approach should the government follow to develop strong partnerships among all local stakeholders in the city’s transport system? 6. What are the takeaway messages from the case?

Table E.1 Maseru Urban Planning and Transport Study Investment Plan (2011-2030)

Subgroups USD million NMT facilities; 5.2 Sidewalk rehabilitation Cycle path Public Transport; 54.8 BRT priority Bus stops Bus procurement Intersection upgrading; 7.2 28 intersections around the city need to be re-designed Traffic management; 1.8 Road hump Electronic parking (City Centre On-street Parking) Road sign Integrated ticketing Traffic signal Road construction; 19.5 North bypass North ring Airport extension (Construction of 35 km of arterial roads & 18.5 km of new arterial roads)

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Road rehabilitation; 228.3 Capacity Building & Planning 2.4 BRT detailed design study Develop TDM Multi-year transport survey Transport Authority

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Lusaka Decongestion Project “Commerce, Trade and Industry Minister and Member of Parliament Margaret Mwanakatwe has described the level of road traffic congestion in Lusaka as unbearable. She travelled around the city on Thursday using public transport as a way of having a feel of the public transport system in Lusaka.” [[ Note: What is the source of this quotation? ]] Growing population and economic growth have led to a sharp increase in the number of motor vehicles traveling in Lusaka. Increasing traffic volumes have negative consequences beyond “unbearable” congestion. They have great economic costs in terms of lost productivity and increased fuel imports and health costs in terms of injury and fatality-causing accidents and respiratory and other ailments due to declines in local air quality. In response, the government has launched a massive investment project aimed at “decongesting” the capital city. On April 11, 2018 Zambia’s President Edgar Lungu and his Indian counterpart, Shri Ram Nath Kovind, jointly launched the US$389 million Lusaka Decongestion Project. The project was supposedly based on the results of a 2009 Study (Comprehensive Urban Development Plan) supported by the Japanese International Cooperation Program (JICA). The stated objective of the Decongestion Project is to decongest the city. It is directed at expanding roadway capacity through widenings and new fly-over bridges and overpasses to be constructed over three years by Afcons Interna- tional, an Indian construction company. Informal discussions with city officials revealed a serious concern that the investment may have the unintended conse- quence of worsening congestion by inducing more private motorized travel than would otherwise be there. Could the government have done something different? Lusaka City Lusaka is one of the fastest growing cities in Southern Africa, increasing in population from 1.0 million in 2000, to 1.7 million in 2010, and to almost 2.5 million in 2018. So far, population growth has exceeded the earlier projections in the 2009 JICA study of a population of 2.7 million by 2030. The Greater Lusaka area covers 850 km2, which includes the city of Lusaka with an area of 423 km2, and its adjoining districts Chongwe, Chibombo, and Kafue. Rapid growth has also expanded unplanned urban settlements. The Zambian economy has had an average annual growth of approximately 5.7 percent during the last decade. It successfully navigated the shocks associated with the 2008 global economic and financial crises, and its GDP increases have continued apace. Donor debt relief improved Zambia's external position and helped build foreign-exchange reserves. Direct foreign investment rose from US$165 million in 2003 to US$1.73 billion in 2010 with most of it dedicated to

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LUTP Livingstone, Zambia - May 2019 mining, manufacturing, and wholesale and retail trade. The improvement in the macro economy led to the classification of Zambia as a Lower Middle-Income country by the World Bank in 2011. Despite robust economic growth, the overall percentage of households in poverty in the country is approximately 73 percent. Poverty is prominent, particularly in rural areas; however more than half the urban population also lives below the poverty level. Although Lusaka province, as the country’s largest city and its government and economic capital, has the lowest percentage of its population living in poverty, overall poverty remains high at 52 percent. The Human Development Index for Zambia is 0.434, ranking the country 165 out of 177 countries providing data. Current Urban Transportation System Highway and Pedestrian Facilities: Lusaka is at the confluence of Zambia’s four main highways extending to the north, south, east, and west. There is a core internal road network with a total length of 1,600 km. There are a significant number of roundabouts at major junctions, and traffic signals have been installed at the most congested junctions. Most roundabouts have monuments in the center island that are important parts of the urban landscape. There are numerous traffic signs and markings on major roads to regulate and manage vehicle traffic. There are sidewalks along most major roads, but there are frequent gaps in the pedestrian network, which results in walking being unsafe and inconvenient. There are uncovered drainage ditches on both sides of major roads. People can walk along them, but flooding is frequent because the ditches and connecting pipes contain large amounts of trash which is rarely removed. Travel Demand: According to the Household Interview Survey (HIS) undertaken in 2007 by the JICA Study Team, the total number of home-base trips in Lusaka is about 1.8 million trips per day, and the average number of trips per person is about 1.57. Walking is, by far, the dominant mode accounting for 65 percent of the total person trips. Bus trips account for 21 percent while private car trips account for only 10 percent. This low car mode share is not surprising because car ownership is low and only about 15 percent of the households in the city have a personal vehicle. Traffic Management: Parking is one of the most serious traffic problems in Lu- saka, especially in the core of the town where on-street parking is common and off-street parking lots are insufficient for the demand. Although parking places are provided in the city by the Lusaka City Council (LCC), the capacity is very small. LCC collects a parking charge at a fee of ZMK1000/hour. The City does not have a parking policy.

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Public Transport Service, Operating and Business Models The public transport system in Lusaka, like in most major cities in Africa, has evolved over the years. A state-owned bus company, the United Bus Company of Zambia (UBZ), a legacy of British colonial rule, closed in 1995. At that time, a newspaper account said: “The state-run United Bus Company of Zambia (UBZ) seemed headed for col- lapse Wednesday as creditors seized its assets for failing to settle a 4.5 Million Kwacha (about 6.4 million dollars) debt. Government recently said that it would bail out the cash strapped company but has backtracked in the wake of international donor disapproval. The Finance Minister has ruled out government inter- vention to save the company.” After introduction of liberalization and privatization in the economy in the early 1990s, the private sector became the main provider of public transport. Subse- quently, the government granted tax exemptions for minibus imports. That action and the liberalization of public transport licensing brought about a rapid increase in the number of bus operators as well as buses of all kinds. The current public transport system is largely unregulated. There are bus registration and operating fee regulations in place, but the network structure and service levels are heavily dependent on the will of drivers who decide where and when they wish to go, with minimal actual regulation and enforcement. Destinations are not clearly indicated on each bus so each passenger must determine the bus destination from its conductor. Public transport operates on an on-demand basis, meaning that buses leave origin terminals when there are a sufficient number of passengers on board, not according to a fixed schedule. This results in long wait times at terminal stations where there are few amenities and little security. The buses stop anywhere and whenever customers want to alight and/or where customers hail them. This results in a lack of fixed schedules or service regularity for passengers boarding along each route. Bus owners rent their vehicles to the actual bus operators (drivers) and collect a daily rental fee from them. Bus routes are not fixed because each individual minibus driver can change the route taken according to passengers’ demands at that time. Normally, drivers select high demand bus routes and times to maximize their revenue, but there is inadequate service elsewhere. Buses are added to the system based on individual owners’ will to supply them. There are no enforced regulations dealing with vehicle numbers per route, driver safety, vehicle condition and quality, service levels in low demand locations, and

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LUTP Livingstone, Zambia - May 2019 service times. This means that there may be too many drivers chasing the same customers on some routes while other routes have too little service. Minibuses are heavily utilized because they provide reasonable service on busy routes during peak periods and because there are no available, affordable alternatives. However, minibuses are one of the major causes of traffic congestion and accidents in Lusaka because of the dangerous manner in which drivers operate as they compete on the street for customers. The high fatality rate, about 22 per 10,000 people, is 2-4 times other countries in Africa, for example, Uganda (6.8), Kenya (10.2), and Zimbabwe (11.3)). There are currently approximately 2,600 buses officially registered by the RTSA. As noted above, this has led to overcapacity and in-route competition for a limited number of customers. These problems and traffic congestion lower the number of daily trips each driver can make to on average only four runs per day. Travel times are high and bus operators drive unsafely in an effort to make more trips and thus pick up more customers on highly congested roadways. Accordingly, owners do not make enough money to adequately maintain their vehicles, drivers must work long hours for little net pay, and there is general cus- tomer dissatisfaction with public transport. PT Vehicles: The most popular type of bus are minibuses with 12 seats, for example, the Toyota Hi-ace. Medium-size buses with 24 seats and some standing capacity are also operated. Large-size buses, on the other hand, are operated only for intercity transport. Most of the buses are more than 10 years old, use an undue amount of fuel, and are highly polluting. Most lack air conditioning and provide little space for comfort and internal circulation. Almost all vehicles are inaccessi- ble to the physically challenged since there are no requirements for accessibility when vehicles are registered, and many if not most, are not registered at all. There is no official fare structure covering transfers. Regulated bus fares are uniform but often negotiated, with no official, subsidized discounts for the poor, other disadvantaged populations, and students. PT Facilities: There are five bus terminals in the center of the city: i) Lusaka City Market; ii) Kulima Tower Bus Station; iii) Lumumba Bus Station; iv) Mil- lennium Bus Station; and v) Intercity Bus Terminus. LCC operates three of these terminals: Lusaka City Market; Kulima Tower Bus Station; and Lusaka Intercity Bus Terminus. The Millennium Bus Station is operated by a private company, while the Lumumba Bus Station is operated by a joint venture of LCC and a private company. Only Lusaka Intercity Bus Station is situated east of the railway, while the other terminals are situated in the city’s core. Planned Changes: The cdity is proposing to ban minibuses by 2019. This is expected to have a huge negative impact on the poor. Phasing out minibuses will

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LUTP Livingstone, Zambia - May 2019 make the cost of transport more expensive, and it will push many operators out of business, as many of them cannot afford to buy a new bus. The transport sector is also one of the major sources of employment in the country because it absorbs a huge population who have not attained any formal training or education. Institutional Arrangements: Urban Transport and Public Transport Jurisdiction over urban transportation issues is split among multiple tiers of government, and within each tier, among multiple agencies, creating a lack of clarity and overlapping mandates. Zambian Central Government: The Ministry of Communications and Transport (MOCT): The Department of Transport (DoT) in the MOCT is responsible for: policy formulation, review, implementation, and coordination; resource mobilization; coordination of national transport corridor spatial development initiatives; research and development; providing technical advice to transport sector parastatals boards of direc- tors; and other related policy level functions for all modes of transport in air, railways, roads, and maritime inland waterways. Road Transport and Safety Agency (RTSA): Under MOCT, RTSA was legis- lated in 2003 to carry out the transport control and regulatory functions. RTSA is thus responsible for vehicle testing to ensure road worthiness, collection of road licensing fees, issuing of cross-border permits, collection of road user fees, management of enforcement and fines, and programming, procurement, monitoring and evaluation of road transport regulations and safety programs. Road Development Agency (RDA): Under the Ministry of Works and Supply (MOWS), the RDA is responsible for the programming, procurement, monitoring, and overall supervision of all road works in the country, that is, trunk, main, district, urban, rural, and feeder roads. Zambia Police (Road Traffic Department): This office is responsible for the enforcement of Road Traffic Laws (Act No 11 of 2002 of the Laws of Zambia) (Zambia Police, 2014). The police traffic officers also conduct road safety aware- ness programs and sensitize the public in general, and motorists in particular, through radio, television, print media, ceremonies, roads, brochures, and public shows. They also visit schools to educate school children on road safety aware- ness. National Road Fund Agency (NRFA): Under the Ministry of Finance and Na- tional Planning, the NFRA is responsible for the collection, disbursement, management, and accounting of the National Road Fund, reporting through the Minis- try of Finance and National Planning to the Committee of Ministers on Road Maintenance Initiative (RMI).

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Local Governments: Through the Ministry of Local Government and Housing, city councils in Lusaka and other cities are responsible for over-all public transport management. Their mandate is to provide and operate bus stations, des- ignate routes, and develop associated public transport infrastructure along routes Development Plan for Lusaka A 20-year land use-municipal services plan was developed by JICA (2010-2030) in 2009 to address the needs of a population forecasted to be 2.7 million by 2030. The plan proposed gradual, dense residential development led by industrial zones and development of competitive urban centers. Satellite cities were proposed to be established in the medium- and long -terms in areas adjacent to Chibombo, Chongwe, and Kafue Districts. These were proposed to be constructed in conjunction with industrial zones within the corridors defined by proposed Outer Ring roads. Peri-urban agricultural land is to be retained and improved for both food production and to provide an environmental buffer green of ECHO garden city development. It was recommended that urban growth management be achieved through inten- sive infrastructure provision and strict development controls in the “Guided Ur- ban Development Promotion Area” while development in other areas would be curtailed. Economic incentives for private developers would be used to increase densities and thus make land utilization (and transport) much more efficient within the Development Promotion Areas. A density gradient from the dense urban core to lower density outer areas is to be achieved by land use control measures (that is, “zoning”) in combination with a range of floor area ratio (FAR) and building coverage ratio (BCR) limits. Key Objectives: As part of the overall urban plan, the key objectives of the Urban Transport Mas- ter Plan are: • Equal accessibility for all citizens • A safe and pleasant transport system • Sustainable economic development • Sound and managed urban growth • Enriched quality of life The total development cost of the necessary transport projects and programs are estimated at US$3,136 million (equivalent to ZMK 11,230 billion), of which about US$1.0 billion is proposed for urban transport development during the next 20 years (2010-2030). The investments in transportation infrastructure proposed in the development plan are:

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Road Network. The proposed arterial road network consists of three ring roads (Outer Ring Road 85.7 km Arterial Motorway, Middle Ring Road 50.5 km Minor Arterial, and Inner Ring Road 37.0 km Major and Minor Arterial), 12 radial roads, and 7 other major roads. Traffic service level on roads will significantly improve if the proposed JST urban transport development plan is implemented. Bus Transit. In the short term, the present bus system will continue because public transport has to rely on private sector support under the national policy of liberalization and due to the weak financing situation of Lusaka City. The bus network will be expanded through the improvement of the roads, construction of bus stops, and designation of new bus routes. Scheduled bus services on a fixed route system will be introduced in the midterm. A priority or exclusive lane system for scheduled buses, as shown in the Proposed Land Use Plan in Figure E.2, will be introduced in 2030. Rail Transit. Considering investment cost, rail transit should be introduced only when it is economically feasible in terms of energy consumption and the reduc- tion of traffic congestion on roads. Further study will be needed to determine whether the railway should be included in the master plan or not. At present, rail transit is proposed as a project beyond 2030, when Zambia becomes a middle-income country. Freight Traffic. Outer Ring Road will serve as the freight corridor connecting the future industrial zones such as MFEZs and logistics centers. Air Transport. Lusaka International Airport will handle air cargo and both international and domestic passengers. The new passenger terminal for international flight and the new building for cargo flight will provide high quality services Stakeholder Consultation Multiple stakeholders were engaged in development of the program in a variety of ways, including: 1. A number of meetings were held to inform the constituents of the study (See Table E.2). 2. A newsletter about the study was issued to inform stakeholders on the progress of the study progress. a. Hard copies of the newsletter were distributed to stakeholders at individual meetings, working group meetings, and stakeholder meetings. b. A soft copy of the newsletter was made available through the web- sites of MLGH and LCC. 3. Exhibitions to disseminate the master plan and obtain feedbacks from the public were organized at three different locations: the Lusaka City Council; Arcades, the Shopping Mall; and the Lusaka City Market.

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Table E.2: Results of Stakeholder Meetings

Formulation of the Vision • Introduction of study outputs Feb 2008 and Strategy • Discussion on alternatives • Discussion on issues of subprogram

Formulation of the Com- • Information dissemination to representa- July prehensive Urban Devel- tives of communities 2008 opment Plan • Collection of feedbacks from stakeholders, including residents

Stakeholder meeting on In- • Sharing of understanding with the stake- Nov ner-Ring Road Project olders (ward representatives) on the pro- 2008 posed Inner-Ring Road Project, its expected environmental/social impacts, and the social/environmental consideration study for the project • Obtaining comments/suggestions from stakeholders

Presentation on the Com- • Invite general public and the media to dis- Nov prehensive Master Plan for cuss the draft master plan and obtain their 2008 the City of Lusaka (draft) opinions

Pre-F/S of Priority Projects • Introduction of study outputs Nov • Discussion on priority projects 2008

Finalization of the study • Information dissemination of the draft Feb 2009 and preparation of the master plan and FS to representatives of Draft Final Report communities • Collection of feedbacks from residents

Priority Project. Within the 20-year priority plan, priority projects and programs are proposed for a five-year term, 2010-2015. (See Figure E.1).These were selected on the basis of: i) urgency of delivery; ii) effectiveness; iii) viability; and iv) environmental soundness. Approximately US$421 million (ZMK 1,510 billion) is the total estimated cost for the priority projects, of which US$108 million is for transport improvements. (Ta- ble E.3 provides a list of the projects and programs.)

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At the time of this writing, it was not possible to determine if any of the proposed short-term investments were actually financed. Lusaka Decongestion Project In 2017, a set of transport investments intended to “decongest Lusaka” were identified by the Government of Zambia to be financed by the Indian Government. Referred to as the Lusaka Decongestion Project (LDP), they are intended to re- duce traffic jams, travel times, and travel distances and to save precious imported fuel. The project is cofinanced by Government of Zambia (15 percent) and Exxim Bank of India (85 percent) and will take 36 months to complete. The specific project investments were taken from the recommendations of the earlier study conducted by the Japan International Cooperation Agency (JICA) in 2009. Key features of the Lusaka Decongestion Project (LDP) are: 1. Total road works of 120.7 km, with dedicated bus lanes in the medians 2. Rehabilitation and upgrading of 91.4 km of Ring Road 3. A new outer ring road from Kafue road (Makeni) to the new Mumbwa Road. It will further stretch to Lusaka West and join the Great North Road (Kabwe Road) on Chikumbi Road 4. Grade separations at four selected points of the city, namely Kafue Road (Makeni Junction), the Kafue roundabout, the Kabwe roundabout, and the Arcades roundabout 5. Road expansions at Churcthe h-Cairo Junction, the Kabulonga roundabout, the Highcourt roundabout, Longacres roundabout and Mosi-O-Tunya 6. Kasangula, Lake-Mwapona, Nangwenya, Zambezi, Alick Nkhata, Munali- Mutumbi Kamloops, and Buyantanshi Roads will be expanded to four lanes. As of July 2018, construction had begun on road rehabilitations and grade separations. Discussions with city officials revealed a certain nervousness on the likely impact of the project investments. Congestion was getting worse during the construction period and it was not very clear if adding capacity will have any long- term impact on alleviating congestion. The city was wondering where planning was deficient and what else could have been done.

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Table E.3: Priority Project/Programs for Short Term Period Imple- mentation Urban Transportation USD Million

1. Inner Ring Road (Mumbwa-Kafue-Kasama, (12.9km) 29.4 2. Outer Ring Road (9.4km)+Lilay Road (7.6km) 31.8 3. LS-MFEZ Access (10.4km) 21.7 4. Airport Road Extension (LN-MFEZ, 6.4km) 4.9 5. Mumbwa road/Los Angeles Road (4.0km) 12.8 6. Kalambo Road/Benbella Road (1.6km) 0.7 7. Bus Institutional Reform 1.0 8. Traffic Management in Town 2.5 9. Intersection Improvement (10 intersections) 3.8 TOTAL 108.6

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Figure E.1: Road Network Plan for 2015

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Figure E.2: Proposed Land Use Plan 2030

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