Transport Sector Building Connections

Home , Arghistan, Delaram, Ghor Province, Gulran, Guzara, Haji Khel

Securing Afghanistan’s Future Accomplishments and the Way Forward

Asian Development Bank Securing Afghanistan’s Future Accomplishments and the Way Forward

Transport Sector Building Connections

Asian Development Bank

South Asia Department March 2004

This paper was originally prepared as a draft Technical Annex to Chapter 3 of Securing Afghanistan’s Future: Accomplishments and the Strategic Path Forward. As such it is also available on the Afghanistan Government’s website (www.af/recosting ). The analysis and views expressed in this paper are those of the authors and do not necessarily reflectthe position of the Governors of ADB.

ADB does not guarantee the accuracy of the data included in this publication and accepts no responsibility for any consequences of their use.

Use of the term “country” does not imply any judgment by the authors of ADB as to the legal or other status of any territorial entity.

Principal Authors: Mohiuddin Alamgir, Natin Patel, V. N. Gnanathurai, Hideaki Iwasaki, Munawar Alam, Salim M. Qayum, Ravi Khera, and Mahammad Rasooli Supervisors: Frank Polman, Tadashi Kondo Coordinator: Craig Steffensen Editing and Typesetting: Sara Collins Medina Cover Design: Ram Cabrera Cover Photograph: Hideaki Iwasaki Page Photographs: Hideaki Iwasaki, Munawar Alam Administrative Support: Jane Santiano Fulfillment: ADB Printing Unit

Published by the Asian Development Bank P.O. Box 789 0980 Manila, Philippines Website: www.adb.org

ISBN: 971-561-536-8 Publication Stock No. 020804 iv Contents

TERMS AND ABBREVIATIONS ...... xi FOREWORD...... xiii EXECUTIVE SUMMARY ...... xv BACKGROUND...... 1 ORGANIZATION OF THE TRANSPORT SECTOR...... 3 Roads and Highways ...... 3 Civil Aviation and Tourism ...... 3 Road Transport and Traffic ...... 4 Railways ...... 5 CURRENT STATUS AND ACCOMPLISHMENTS ...... 7 Current Status ...... 7 Roads ...... 7 Civil Aviation ...... 9 Road Transport and Traffic ...... 10 Railways ...... 11 Rehabilitation at Work and Accomplishments ...... 11 Roads ...... 11 Civil Aviation...... 13 Road Transport ...... 14 KEY ISSUES AND CONSTRAINTS ...... 15 Crosscutting Issues ...... 15 Security...... 15 Capacity ...... 15 Public Ownership ...... 15 Efficiency...... 15 Cross-Border Trade ...... 16 Regulation ...... 16 Accessibility and Gender ...... 16 Environmental Issues ...... 16

v Regulating Safety, Security, and Environmental Protection ...... 17 The Handicapped ...... 17 Roads and Highways ...... 17 The Private Sector ...... 17 Toll Collection...... 17 Implementation Constraints ...... 17 Civil Aviation and Tourism ...... 18 Road Transport and Traffic ...... 18 Railways ...... 18 STRATEGIC VISION, GOALS, AND KEY PRIORITIES ...... 19 Strategic Vision and Objective ...... 19 Goals ...... 19 Key Priorities...... 19 Roads and Highways ...... 20 Civil Aviation and Tourism ...... 21 Road Transport and Traffic ...... 21 Railways ...... 22 OUTCOME/SERVICE DELIVERY INDICATORS AND TARGETS...... 23 Roads and Highways ...... 23 Civil Aviation and Tourism ...... 23 Road Transport and Traffic ...... 23 Railways ...... 24 COSTING OF OUTCOME/SERVICE DELIVERY TARGETS ...... 25 Roads and Highways ...... 25 Civil Aviation and Tourism ...... 25 Road Transport and Traffic ...... 26 Railways ...... 27 IMPLEMENTATION STRATEGY, INSTITUTIONAL AND FINANCIAL ARRANGEMENTS, AND CAPACITY ...... 29 Roads and Highways ...... 29 Institutional Structure to Implement the Road Network ...... 29 Operation and Maintenance Arrangements and Financing ...... 29 Institutional Implications ...... 30 Capacity Building and Institutional Strengthening ...... 31 Policy Reforms ...... 32 Civil Aviation and Tourism ...... 32 Institutional Setup ...... 32 Human Resources Development ...... 33

vi Implementation Arrangements ...... 33 Road Transport and Traffic ...... 33 Institutional Structure to Support Transportation Activities ...... 33 Implementation of the Program ...... 34 Capacity Building and Institutional Strengthening ...... 35 Policy Reforms ...... 35 Railways ...... 36 DEVELOPMENT PROGRAM AND BUDGET...... 37

APPENDIXES ...... 41 Appendix 1. Road Lengths in Different Road Categories ...... 41 Appendix 2. Roads and Highways Network ...... 43 Appendix 3A. Provincial Roads by Province and District ...... 45 Appendix 3B. Summary for Provincial Roads ...... 52 Appendix 4. Current Commitments for Roads and Highways (1382–1383/2003–2004).53 . Appendix 5. Update on National Development Budget: Ministry of Civil Aviation and Tourism Proposed Projects for 1381–1383/2002–2004 ...... 55 Appendix 6. Update on National Development Budget: Ministry of Transport ...... 56 Proposed Projects for 1381–1383/2002–2004 Appendix 7. Construction Equipment Availability at the Ministry of Public Works ...... 57 Appendix 8. Transitional Islamic Government of Afghanistan: Policy Statement for the Transport Sector ...... 58 Appendix 9. Financing the Road Sector ...... 63 Appendix 10. Transport Program Objectives ...... 69 Appendix 11. Roads and Highways Investment Program 1383–1389/2004–2010 ...... 70 Appendix 12. Civil Aviation and Tourism Investment Program 1383–1389/ 2004–2010 ...... 74 Appendix 13. Road Transport and Traffic Investment Program 1383–1389/ 2004–2010 ...... 76 Appendix 14. Railways: Dispatch and Receiving Stations Investment Program 1383–1389/2004–2010 ...... 80 Appendix 15. Transport Sector Seven-Year Investment Program in Budget Form (Disbursement) ...... 81 Appendix 16. Transport Sector Investment Program 1383–1389/2004–2010 ...... 84 Appendix 17. Transport Sector Seven-Year Investment Program in Budget Format (Commitment) ...... 85

vii TABLES Table 1. Major Road Network ...... 7 Table 2. Road Condition of Selected Corridors in Afghanistan ...... 8 Table 3. Travel Time on Primary Road Network, March–April 1383/2002 ...... 9 Table 4. Distances and Travel Time on Selected Road Corridors, 1383/2004 ...... 10 Table 5. Estimated Vehicle Fleet, 1382/2003 ...... 11 Table 6. Principal Activities Started in the Transport Sector, 1381/2002 ...... 12 Table 7. Transport Sector Public Investment Program 1383–1389/2004–2010 ...... 38 Table 8. Transport Sector Financing Requirement 1383–1389/2004–2010 ...... 39

FIGURES Figure 1. Current Structure of the Ministry of Public Works ...... 4 Figure 2. Current Structure of the Ministry of Civil Aviation and Tourism ...... 5 Figure 3. Current Structure of the Ministry of Transport ...... 6

viii Terms and Abbreviations

AACA Afghan Assistance Coordination Authority A D B Asian Development Bank A N S air navigation system A T M air traffic management C B D capacity-building department C N A Comprehensive Needs Assessment D R S dispatching and receiving stations G D P gross domestic product ICAO International Civil Aviation Organization I D P internally displaced people/population I M F International Monetary Fund ITGA Islamic Transitional Government of Afghanistan MCAT Ministry of Civil Aviation and Tourism M O C Ministry of Commerce M O F Ministry of Finance M O T Ministry of Transport M P W Ministry of Public Works MRRC Ministry of Rehabilitation and Rural Development N G O nongovernment organization O & M operation and maintenance P M U project management unit P R R priority reforms and restructuring R C U road construction unit UNDP United Nations Development Programme UNOPS United Nations Office of Project Services

Currency Equivalents (as of 13 December 2003)

Currency Unit – Afghani (Af) Af1.0 = $0.022148 $1 = Af48.15

Note : In this report “$” refers to US dollars.

ix Executive Summary

system, especially of national roads, is the country’s top The Sector in Context priority in reconstruction. To move all types of vehicles safely and at reasonable cost, creation of an efficient road As a landlocked country, Afghanistan relies heavily transport and traffic system is also a high priority. Like- on road and air transport. Both are in a very poor state as a wise, rehabilitation and improvement of the air transport result of long years of conflict and inadequate maintenance. system will facilitate access to remote areas and the move- The prolonged state of conflict in Afghanistan has resulted ment of people and of low-volume, high-value merchan- in large-scale deterioration of all infrastructure, especially dise. the road infrastructure including damage to critical struc- The Ministry of Public Works (MPW), once respon- tures and bridges and the 2.8 km Salang tunnel that pro- sible for virtually all government construction and mainte- vides vital access to the northern part of the country. This nance, has lost nearly all its resources for road construction period also witnessed serious depletion of the skilled man- and maintenance during more than 2 decades of conflict. power. Rehabilitation of the transport sector’s physical The Ministry of Rehabilitation and Rural Development assets, improved asset management, and increased institu- (MRRD) is responsible for development of rural infra- tional capacity hold the key to economic development, structure, including rural roads, but does not even know national integration, and security. The task is formidable how many kilometers of road that entails. given that only about 13% of Afghanistan’s 21,000-kilo- In civil aviation, a massive rebuilding effort is required meter (km) road network is paved. Neither these nor the to bring back the airport infrastructure to a standard that 18,000 km of unpaved (gravel or earth) roads have been meets the desired level of activities at each airport, and that maintained over the past 2 decades. Travel time and cost is in compliance with the standards and recommended prac- have increased substantially and, combined with the secu- tices set by the International Civil Aviation Organization rity situation, have reduced movement of goods and people. (ICAO). The Ministry of Civil Aviation and Tourism Afghanistan has only a tiny railway segment, but plans to (MCAT) is responsible for operation and maintenance of give it a role in the future in dispatching and receiving bulk the country’s two international airports at Kabul and shipments from neighboring countries. Kandahar, four major domestic airports, and 17 regional To keep up with increasing traffic volume, to improve airports providing access to remote areas. movement of goods and services thereby fostering trade The Ministry of Transport (MOT) manages what little and commerce, and to promote trade links with neighbor- remains of the government-owned vehicle fleet and regu- ing countries, it is essential that the entire primary road lates the private sector transport industry. Because of the network be rehabilitated on a priority basis. The findings Government’s preference for private sector operations, of the Comprehensive Needs Assessment for the transport MOT will probably be left with regulatory function, sector support this conclusion. The road rehabilitation although it hopes to revive some of its operations, even if at efforts should not only respond to the current requirements a much lower scale than in the past. of domestic trade but also start taking advantage of the For the purpose of the recosting exercise and for addi- possibilities of expansion of regional trade. The Islamic tional reference in this paper, Afghanistan’s road network Transitional Government of Afghanistan (ITGA) has has been classified into four categories: declared that reconstruction and rehabilitation of the road

xi • National Super Highway/Corridor, to link the country’s regions and integrate Afghanistan with Sector Vision and neighboring countries to enhance trade and commerce, leading to economic prosperity in the region and Objectives reduction of poverty; • National Highway network, to integrate various prov- The vision of the Government is “to restore and create inces, and to link up with major resource centers such the basic transport infrastructure facilities, including roads as oil, gas and minerals; and airports, to allow better operation of necessary public • Provincial roads, designed to link important provin- and private transport services in all areas of the country, cial capitals with one another and provincial capitals and international linkages, thereby facilitating economic with district headquarters; and development by improving access to markets and reduc- • Rural roads, to strengthen farm-to-market linkages and ing poverty. The program focuses on specific interventions open access to higher order roads to facilitate move- in the primary and secondary road, civil aviation ment of goods and people between rural areas and the infrastructure, and essential public transport.” outside world. The objective of this program is to promote national and regional/subregional integration, development, and security by restoring, expanding, and improving roads and Key Issues and Constraints highways, civil aviation and transport services that will allow efficient public and private sector operations, Many critical issues confront the transport sector; strengthen market and international linkages, and create some cut across the sector, others are specific to various opportunities for the poor to share in the benefits of growth subsectors. Security concerns affect all subsectors, as does and prosperity, thereby eliminating poverty in the foresee- lack of capacity. Bias towards public sector ownership and able future. operation is still pervasive in all subsectors, calling for a The goal of the roads and highways subprogram is to push towards greater private sector participation. The cur- rehabilitate and improve the road and highway network; rent arrangements do not promote efficiency and often also strengthen domestic linkages between the capital, all make it difficult to effectively address matters of public major cities, commercial, industrial production and min- interest. Ongoing policy and institutional reforms have to ing centers, and provincial and district headquarters; and be pursued with a greater sense of urgency. Cross-border strengthen linkages with neighboring countries, thereby trade is constrained by a huge bureaucracy, corruption, facilitating economic development. In 2003, Afghanistan and lack of trade facilitation services such as customs com- had 0.15 km of paved roads per 1,000 people. The target is plexes, warehouse facilities, standardized bulk transport to raise this to 0.23 km in 2010 and 0.46 km in 2015, both carriers, and other amenities. With regard to accessibility well within the present range for comparable developing and gender, regulation may include standard setting and countries. enforcement, but the issues at hand may require a more In the civil aviation and tourism subprogram, the goal proactive role by the public sector. Environmental aspects is to rehabilitate and improve airports and air transport, and implications should be considered in all administra- together with tourism services. This will bring remote tive, operational, planning, and construction activities. In areas into the mainstream economy, allow improved link- particular, environmental features of vehicles and aircraft ages and faster travel to and from the rest of the world and must be given high priority. As in the case of other taxes within the country between major cities and towns. It will and levies, toll collection on national and provincial also facilitate movement of people, including tourists, for highways is irregular, unsupervised, and unaudited. The whom natural and historical sites of Afghanistan should current state of road transport and traffic highlights the become an increasingly attractive destination, and increase need for early resolution of key issues such as the role of trade in low-volume, high-value goods. The target in the the Government in providing transport services, regulating civil aviation sector is to complete upgrading of 4 interna- private users, and achieving socioeconomic objectives of tional airports at Kabul, Herat, Jalalabad and Mazar-e- accessibility, and the structure of government institutions Sharif and 15 major domestic airports. In the case of tour- dealing with the sector. ism, the effort is to revive the moribund sector and bring back the tourists who are staying away from Afghanistan for various reasons, primarily lack of security and ameni- xii ties. The target is to develop 20 tourist sites by 2010 and Other road sector priorities in the National Highway another 10 by 2015. network (2,175 km) promoting trade and economic link- In the road transport and traffic subprogram, the ages and extending Super Corridors to provincial capitals: Government’s role is likely to become more regulatory. The • Farah Road–Delaram Highway (253 km), goal is to increase and improve the vehicle fleet and main- • East-West Highway (1,267 km), tenance and allow better operation of necessary public and • North-South Highways 1 (775 km) and 2 (776 km), private transport services in all areas of the country. In 2003, • Khulm–Eshkashem Highway (478 km), Afghanistan had 13.71 vehicles per 1,000 people. The tar- • Asadabad–Ghazni Network Highway (817 km), and get is to raise the number to 26.71 by 2010 and 40 by 2015, • Jabal Saraj–Nurestan Network Highway (172 km). levels achieved by other comparable developing countries. In addition, Provincial Roads (4,484 km), type 1 and At this stage, the railway subprogram has the limited type 2, will improve the administrative, trade, and economic goal to take advantage of the existing railway networks in contacts between district headquarters and respective pro- neighboring countries that extend to the Afghan border to vincial capitals and between important district headquar- facilitate reception and dispatch of bulk shipments at bor- ters. The program also includes Rural Roads (1,500 km) der termini, thereby reducing transport cost substantially bringing the hinterland in commercial contact with mar- and increasing cross-border trade. In the railway subpro- kets and seats of power. gram, results in the first 3 years will focus exclusively on the establishment of five Dispatch and Receiving Stations Civil Aviation and Tourism at Islam Qala, Torghundi, Hairatan, Spin Boldak, and Torkham, together with other facilities such as customs com- Key priorities in the civil aviation and tourism sub- plexes, truck parking, and dedicated warehouse facilities. program include the following public investments: • Upgrading of Kabul Airport to a full-fledged interna- Investment Priorities tional airport meeting ICAO standards; • upgrading Herat, Mazar-e-Sharif, and Jalalabad airports to international standards; Total investment requirement over the 7-year period • Upgrading 15 major domestic airports at Konduz, for the transport sector is $12.3 billion, equally divided Feyzabad, Bamian, Chaghcharan, Yakawlang, between the public and private sector. Of the total public Sheberghan, Meymaneh, Taloqan, Gardeyz, Khowst, investment of $6.1 billion, 79% or $4.8 billion is for roads Zaranj, Bost, Badakhshan, Qal’eh-ye Now, and and highways, $0.8 billion for civil aviation and tourism, Khawahan; and $0.4 billion for road transport, and $0.1 billion for rail- • Establishment of an appropriate air traffic management ways. A total of $2.4 billion in public sector investment system (ATM) that meets international standards. will be required over the next 3 years, $1.9 billion for roads The key priority for tourism is the development of 20 and highways, $0.3 billion for civil aviation and tourism, national tourist sites. $0.2 billion for road transport and $0.124 billion for railways. Road Transport and Traffic Roads and Highways In the road transport and traffic subprogram—without any prejudice to ultimate policy decision by the Gov- Key investment priorities include the Super Corridor ernment—the key priorities include (two-lane expansion to make four lanes) (2,323 km) fos- • Afghan International Transport managing a 75-truck tering regional trade and economic linkages between fleet facilitating movement of strategic materials to Afghanistan and neighboring countries Iran, Pakistan, remote areas; Tajikistan, Turkmenistan and Uzbekistan: • Millie Bus Company managing a fleet of 963 buses • Shirkhan Bandar–Pol-e Khomri–Kabul–Kandahar– mostly in Kabul and other major urban centers easing Spin Boldak Super Corridor (1,162 km), pressure on mass transit; • Naibabad–Mazar-e-Sharif–Andkhuoy–Herat– • Establishing/rehabilitating six technical and mainte- Delaram–Zaranj Super Corridor (1,344 km), nance workshops, two at Kabul and one each at • Heart–Islam Qala Super Corridor (124 km), Kandahar, Heart, Mazar and Jalalabad; • Delaram–Kandahar Super Corridor (216 km).

xiii • Reviving the trolley bus system in Kabul; output and services. The construction unit of MPW has • Constructing four transport terminals in Kabul almost no equipment; likewise with MCAT and MOT. reducing pollution and congestion and improving pas- Lack of skilled staff in ministries is severely affecting their senger comfort; ability to plan, design, contract, and implement projects. A • Constructing/rehabilitating 22 administrative build- generation of professional expertise was lost during the ings for transport management; and conflict, as most of the capable and qualified staff left the • Regulating the vehicle fleet. country. The small number of professionals who stayed in The key priority in the railways subprogram is the Afghanistan is reaching retirement age. Due to lack of construction of Railways Dispatch and Receiving Stations additional training during the conflict period, a large gap at Islam Qala, Torghundi, Hairatan, Spin Boldak, and in capacity needs to be filled by recruiting and training a Torkham to handle bulk shipments from and through new generation. T he lack of skilled staff has also led to neighboring countries. delays in approval of projects and other activities. The salary structure of government employees provides little incentive for the staff to put in extra effort and stay with the Financing Requirements Government. This is now being addressed through the Priority Reforms and Restructuring program. Many of the Current commitments for the transport sector include staff trained under projects or technical assistance leave gov- $997 million for the road sector from both bilateral (India, ernment jobs for better remuneration being offered by the Iran, Italy, Japan, Saudi Arabia, United States) and multi- many consultants and contractors; thus skilled staff are lateral aid providers. This amount covers much of the becoming even scarcer. Super Corridor network, 1,000 km of National High- The Transport Sector Review recommended that trans- ways, 326 km of provincial roads, and a small number of port ministries set up a capacity building department rural roads. (CBD) with three international experts for a 3-year period The total assistance package committed so far for the and other short-term expertise from time to time. This unit civil aviation sector amounts to $9 million in 1381/2002, will work closely with a number of staff from each ministry $16 million in 1382/2003, and $11.5 million in 1383/2004, and provide hands-on training in a number of areas. The a total of $37 million. More than 50% of this amount, or CBD’s main task would be to facilitate reform of the min- $19.3 million, provided by the World Bank, is earmarked istry. An alternative would be to establish an MPW project for Kabul airport. Other donors include ADB, India, management unit (PMU) with domestic and international Japan, and United Kingdom. experts and staff (including Afghan expatriates), to man- The total assistance package committed so far for the age the entire program of road and bridge construction transport sector to acquire buses amounts to $36.4 million, under the ministry, from the feasibility stage right through equally divided between India and Japan. to execution, including design, procurement, contract The entire amount of the additional public investment administration and supervision. requirement for 1383–1389/2004–2010 period will have to Infrastructure investments need to be underpinned by be financed with fresh commitments from bilateral and multi- a strong institutional and regulatory framework. It will lateral aid providers. Additional commitments would have therefore be essential to restructure the transport sector to be made by donors in 1389/2010 for subsequent invest- institutions to create an efficient administration. Further, a ments during the 1390–1394/2011–2015 period to achieve strong regulatory framework needs to be put in place to targets set for 1394/2015. The amount of funding commit- provide efficient services to the public irrespective of ment required is $932 million in 1383/2004, $426 million in whether these are provided by the private sector or the pub- 1384/2005, $1,137 million in 1385/2006, $3,689 million in lic sector. Attention has to be paid to financing arrange- 1386/2007 covering the period 1386–1388/2007–2009, and ments and cost recovery. Besides, with overall planning, $4, 904 million in 1389/2010 for the 5 years after that. strategy articulation, project design and implementation capacity so weak, an exceptional effort would have to be made to buy/borrow this capacity from abroad during an Implementation Strategy interim period while a serious program for Afghanization of Afghan development and administration is put in place With present capacity, none of the ministries in the for substantial takeover within the planning period. transport sector is in a position to deliver its traditional xiv guard policies related to social issues, the environment, Institutional Reform and gender and other crosscutting issues. MOT will be separated from operational functions. Most of the trans- MPW will have to be reformed into a lean organiza- port sector—public transport, bus, truck, and taxi—will tion with the primary task of planning countrywide policy be in the hands of private operators. For the public vehicle and the countrywide road network, setting standards fleet, the best eventual option is to privatize. Until then, (including technical, safety, social and environmental safe- government trucks, buses, and trolley buses will be oper- guards), regulating and enforcing the regulations, and man- ated on a commercial basis under three separate commer- aging the Super Corridor and National Highways networks. cial entities: a truck agency, a Millie Bus agency, and a MPW will be responsible for the contracting out of works trolley agency. Vehicle support services, including work- related to the super corridor and national highways. shops/depots and terminals, will be operated in a similar The provincial highways will be the responsibility of the fashion. provincial governments. But since many of them will have to upscale their capacity to be able to implement projects of such a large nature, MPW will assist them in undertaking the con- Risks struction activities, using a model similar to that for the Super Corridors and National Highways. Rural roads will continue The transport sector program faces several risks. to be the responsibility of MRRD. Political instability is one. The outcome of the Loya Jirga MCAT will be left with clearly defined roles that and election will determine the political landscape of the focus on (a) policy and strategy formulation, (b) planning country. Security will remain a threat until national secu- and budgeting, and (c) data base creation and maintenance. rity forces are able to contain terrorist acts, disturbances, The airports of the country will be managed by a number and factional conflicts. The Government’s commitment to of airport companies. Ariana Afghan Airlines will be run policy and institutional reforms may weaken following without government involvement in commercial or installation of a popular administration. The capacity build- operational matters. ing process may remain very slow, making field-level imple- The primary function of MOT will be strategic plan- mentation of projects difficult. ning, policymaking, regulation and enforcement, and safe-

xv Chapter I BACKGROUND

s a landlocked country lacking railways and The revival of Afghanistan’s economy and the resump- functioning river ports, Afghanistan relies on tion of economic growth depend critically on the recon- A surface and air transport for the movement of pas- struction and rehabilitation of transport infrastructure, es- sengers and goods. Most transport needs are met by road pecially road transport. To keep up with increasing traffic transport, which is one of the most vital elements in the volume, to improve the movement of goods and services country’s infrastructure: in addition to moving goods and fostering trade and commerce, and to promote trade links people from one part of the country to another and deliver- with neighboring countries, the entire road network must ing necessary imports, it plays a major role in delivering be rehabilitated on a priority basis. This conclusion is also humanitarian aid and facilitating the return of refugees. supported by the findings of the Comp rehensive Needs The prolonged state of conflict in Afghanistan has Assessment (CNA) for the transport sector. 1 Improved road resulted in large-scale deterioration of all infrastructure in networks mean faster and more efficient movement of goods the country, especially road infrastructure: critical struc- and people around the country and better links between Af- tures and bridges, and the 2.8 km Salang Tunnel provid- ghanistan and its neighbors, stimulating production and coming access to the northern part of the country, have been merce and laying the foundation for longer-term sustainable damaged or destroyed; roads that were originally con- economic growth, social development, national integration, and structed to a high standard have fallen into disrepair and/ political unification. or show signs of severe aging, embrittlement, and loss of Improved road networks aid poverty reduction by pro- bitumen. Repairs or partial repairs have been carried out viding a large part of the population—including women and and overlay applied, in most cases without proper engineering considerations. 1 The transport sector CNA was based on the findings of a joint donors’ In addition to roads, Afghanistan relies significantly mission in March 2002. The report was finalized in May 2003. on the civil aviation sector to overcome the isolation of B efore: lik8e7o fallAfghanistarns oadtsh ihsighwayiBnamiapnrovincreemainusnpaved widely dispersed communities in remote locations and move international and domestic passengers. In civil air transport, paved runways have suffered the same fate as the roads. PHOTO In addition, virtually all of the former aviation communications system is destroyed or not operating, and the country has no functioning navigation aids or meteorological facilities. In all transport sectors, the state of conflict resulted in a cata- strophic loss of skilled manpower due to flight from the country.

Background 1 other disadvantaged groups—with better access to op- fuel, thereby reducing pressure on forests for fuelwood; portunities of all kinds: employment and livelihood, (2) improving vehicle fuel efficiency, thereby saving fuel selection of goods, informal trade, and private sector growth. and reducing pollution; (3) stabilizing embankments; (4) Better communication between places and people will preventing erosion; and (5) reducing permanent loss of improve security and stability, help resolve ethnic tensions, agricultural land from encroachment by vehicles along and promote informal trade among the country’s sections. roads. The rehabilitation and reconstruction of road trans- Therefore, to keep up with increasing traffic volume, port infrastructure, much of it labor intensive, will also improve the movement of goods and people thereby pro- contribute directly to employment and income generation, moting trade and commerce, and facilitate trade links with especially of refugees and excombatants, thus contributing neighboring countries, Afghanistan’s primary road network to poverty reduction and social stability. A wide range of direct opportunities would open up for the private sector in road construction, machinery construction, and maintenance, as well as transport and travel amenities and services. The maintenance of an improved road system, moreover, will neces- PHOTO sitate a corps of permanent employees, potentially including refugees, internally displaced persons (IDPs), and other poor people. Improved transport would generate revenue for the Govern- ment. An increased volume of transport would directly generate tolls, while the economic growth generated by a rehabilitated road system would indirectly increase the amount of tax revenue from income, corporate, and trade taxes, ThisstretchoftheRingRoadbetweenPol eKhomriandM tariffs, and other fees. A strengthened transport system will serve regional must be rehabilitated on a priority basis. The CNA find- interests; international “Super Corridors” will promote ings for the transport sector support this conclusion. The regional and international trade, a national network will Islamic Transitional Government of Afghanistan (ITGA) promote domestic and international trade, while provin- has declared that reconstruction and rehabilitation of the cial and rural roads will strengthen inter- and intrapro- road system, especially of national roads, is a top priority in vincial and district linkages and accelerate local economic the country’s reconstruction. growth. Rural roads in particular are seen as an instrument Similarly, the rehabilitation and improvement of the of rural development, facilitating access to markets and to country’s air transport system will facilitate the movement economic and social services, including education and of people and low-volume, high-value merchandise. health care. International transport corridors through Af- As the population and the level of commerce in ghanistan may once again establish the country as a trade Afghanistan increase and the roads improve, the vehicle hub, generating additional investment in road construc- fleet, of necessity mostly privately owned and operated, will tion and rehabilitation, saving on travel time and travel increase in size. This growth, however, has to be regulated costs, increasing road freight traffic and hence tolls, and to ensure safety, protection of the environment, and the ef- promoting the country’s overall economic development. ficiency and efficacy of local and long-distance passenger Road transport development will promote conserva- and cargo transport services. The public sector role will be tion of the environment by (1) improving the supply of confined primarily to this regulatory function.

2 Securing Afghanistan’s Future: Transport Sector Chapter II ORGANIZATION OF THE TRANSPORT SECTOR

The total current staffing of MPW is 2,200 persons. Roads and Highways The ministry’s mandate covers the following activities: • road infrastructure planning, efore the protracted hostilities, the Ministry of • road construction and maintenance, Public Works (MPW), through its 15 departments, •road tolls collection, Bwas responsible for virtually all government con- • survey and design, struction and maintenance, including roads and bridges, • vehicle maintenance (of its own vehicles and equip- airports, public housing, water supply, etc. All aspects of ment), planning, design, construction, and maintenance were car- • airport design and construction (not maintenance), ried out through a number of MPW in-house construc- • inland waterway terminals, and tion companies. Before 1992, just one of MPW’s depart- •railways. ments, Road Construction and Development, had more The present organization structure of MPW is shown in than 5,000 employees. MPW was responsible for construc- Figure 1 below. tion and maintenance of primary and secondary road net- According to the Transport Sector Review , the Minis- works in the country, but also had a multitude of other try should not try to restore the construction and mainte- responsibilities such as airport and housing construction, nance capacity that it once possessed. The way forward water supply, city planning, collection of road tolls, main- should instead be to engage the private sector in road con- tenance of airport pavements, and the management of sev- struction and maintenance work. The Ministry could, how- eral state-owned construction units for housing, roads, and ever, retain a capability to carry out emergency repair and airports. MPW was charged with carrying out all construc- maintenance and routine maintenance. The Ministry hence tion and maintenance work utilizing force account. With needs to reorganize its maintenance units, which it has more than 6,000 staff that were ill-equipped to perform begun doing under the Government’s Priority Reforms and their duties, it was a significant challenge for MPW to carry Restructuring (PRR). out its responsibilities effectively. The Ministry of Rehabilitation and Rural Develop- MPW has now simplified its activities by increasingly ment (MRRD), which has the responsibility for provision handing over operations to private contractors and focus- of health care, education, and other rural social ing more on road management. But, during the more than services, is responsible for development of rural infrastruc- 2 decades of conflict, MPW lost nearly all its resources for ture, including rural roads. road construction and maintenance and has neither the funds nor the institutional capacity to undertake even routine maintenance 2 of the road network. Clearly these defi- Civil Aviation and Tourism ciencies must be addressed if a road network is to be rehabilitated, constructed, and sustained. The rehabilitation of civil aviation infrastructure in Afghanistan is urgently needed to support regular public transport air services on both international and domestic 2 Sealing of surface cracks, repair of guardrails, cleaning of draining structures, pothole and edge repairs, and removal of vegetation and other routes and overflights. To bring back the infrastructure at obstructions to improve sight distances and safety. each airport to a standard that meets the desired level of

Organization of the Transport Sector 3 Figure 1. Current Structure of the Ministry of Public Works

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1Dr.2345678901234567890 Abdullah Ali 1

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Deputy Minister Dr. Yakub

Dept. Dept. Dept. Dept. Dept. Survey & Dept. Road Dept. Road Supervisor Planning Administration Secretary Design Roads Maintenance Construction & Controller & Airports Engr. Zahad & Airport Engr. Salek Gen. Abdul Qasim Advisers Dept. Technical civil aviation activities, and that is in compliance with the The current staffing level is about 1,200. The report- standards and recommended practices set by the Interna- ing system is complex. The current system mixes safety tional Civil Aviation Organization (ICAO), will require a and operational functions. The ministry seems to be a vic- massive rebuilding effort. tim of indecision as to what its role should be. Moreover, The Ministry of Civil Aviation and Tourism (MCAT) under the current political and security situation, its role is responsible for operation and maintenance of the in promoting tourism is very limited. MCAT has already country’s two international airports at Kabul and Kandahar, 3 taken steps to increase private sector participation in the four major domestic airports, and 17 regional airports pro- civil aviation and tourism sectors, especially in hotels and viding access to extremely remote areas. In addi tion, restaurants. The Government plans to privatize Ariana MCAT owns the national airline and major hotels and is Airlines and encourage private investment in terminal also responsible for promoting the tourism industry and buildings. providing related services. MCAT, in respect of civil aviation, is divided into eight presidencies (Figure 2), whose responsibilities are divided Road Transport and Traffic as follows: • Operations: operation and safety of 22 airports 3; The Ministry of Transport (MOT) manages the gov- • Meteorology: meteorological services to civil aviation; ernment-owned vehicle fleet and regulates the private sec- • Technical: communication, navigation and surveil- tor transport industry. MOT was established in 1979, prior lance, electrics, and mechanics; to which it was a department under the Ministry of Com- • Documents and Liaison; merce (MOC). Before 1978, freight and long distance bus • Law and Regulations issued by MCAT institutional services were left to the private sector, while the public sec- presidencies; tor played a role in Kabul bus service. New legislation in •Planning: in charge of projects, financial and technical; 1978 authorized the Government to provide nationwide • Kabul International Airport: in charge of the airport; freight and passenger services. Figure 3 gives the current • Administration/Finance/Human Resources: nontech- organizational structure. In 1990, MOT reportedly con- nical aspects of the Ministry; and trolled 1,600 trucks, 1,000 buses, and extensive workshops. • Tourism. All are now lost. This reduction in fleet has hollowed out In addition, Ariana Airlines has a presidency. its enterprises, which have been cut from nine to three. MOT provincial checkpoints that once tracked perfor- 3 Kandahar is temporarily not under MCAT operational jurisdiction.

4 Securing Afghanistan’s Future: Transport Sector Figure 2. Current Structure of the Ministry of Civil Aviation and Tourism

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123456789012345678901234 12345678901234567890123Minister of Civil 4 123456789012345678901234

123456789012345678901234 1Aviation2345678901234567890123 & Tourism 4 123456789012345678901234

123456789012345678901234 12345678901234567890123Dr. Zalmai Rasuli 4 123456789012345678901234

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Dpy. Minister Dpy. Minister Technical Eng. Administration Raz Mohd. (vacant) Linkage with MPW Alami

President President General President President President President Documents & Law & Manager President Operations Technical Administration Planning Liaison Regulation Kabul Airport Tourism Bashar Yar Atahi Md. Shafiq Qadri Qazi Nasr (vacant) Ghulam Ali Hisamuddin Ahmed Timur

President School President Hotel Ariana Enterprises Airlines Lt. Gen. Md. Capt. Jahid Yakub Nuristani Azimi

Intercontinen- President 21 Airports other tal Hotel Meteorology than Kabul AirporAirport (on 15–year Qadir contract)

mance and location of its fleets and all other traffic now MPW toll stations. (The collection of tolls was recently halted monitor only private vehicles. but not fees.) With a current staffing level of 1,180, MOT’s primary function now is coordinating agreements between private sector and international transporters and establishing Railways eight offices in neighboring countries to facilitate international trade. Over 70% of the staff are in the private sector The Government is eager to weigh the options of having department, which sets technical standards for private com- rail links with neighboring countries, including Pakistan, Iran, mercial vehicles and inspects them for compliance during Turkmenistan, and Uzbekistan, to foster trade and bring in the licensing/renewal process. MOT’s private sector bulk goods from these countries. The main structures required department collects a fee of 5% per carriage contract from are receiving and dispatching stations on the Afghan side of private trucks and 3% per trip from interprovincial private neighboring countries’ border rail termini to handle bulk buses, based on authorized charge rates (no fee for taxis). goods. The physical facilities would be the responsibility of These fees are collected at national or provincial borders MPW, while operations would be under the Ministry of Com- or the outskirts of major cities at locations shared with merce. MPW is considering a new Railway Department.

Organization of the Transport Sector 5 Figure 3. Current Structure of the Ministry of Transport

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123456789012345678901 Saed12345678901234567890 Md. Ali Javed 1 123456789012345678901

123456789012345678901 Dept. Agencies in 123456789012345678901 Central Dept. Transport Provinces Enterprises Kahmaz Agencies: Loading Trucks: Dpy. Minister Dpy. Minister – Pol-e Khomri (5) – Kahmaz Agency (2) Technical Technical Utilization/ – Kandahar (6) – Kahmaz Agency (3) Dr. Abdul Adviser Benefits – Herat (7) – Kahmaz Agency (4) Haudi Dr. Abdul Said Sadi – Mazar-e-Sharif (8) – Mini Bus Agency (1) Mousani Habib Siar Mutaphkar – Helmand (9) Private Sector Station Tech Services in (Transport Agencies from Haritan Abroad) Dept. Relations Dept. of Govt. Provincial Tpt. Peshawar (Pakistan) & Documents Planning Agencies: Quetta (Pakistan) Anwar Hadait Shafiq Mini Buses Mashad (Iran) (i) Balkh, (ii) Jowzjan, (34 persons) (38 persons) (iii) Herat, (iv) Pol-e Khomri, (v) Kandahar, Dept. of Dept. of (vi) Jalalabad, (vii) Administration Transporta- Paktia, (viii) Bamian, Md. Hasin tion (ix) Parwan, (x) Kanduz Najrabi Md. Akhtar (138 persons) (75 persons)

Dept. of Inflow/ Dept. of Supply Outflow Funds & Procurement Balancing Ghulam Abbas Saif-o-Rahman (29 persons) (14 persons)

Dept. of Private Dept. of Tech- Sector nical Services Abdul Jalil Er. Faizal Amdard (15 persons) (834 persons)

6 Securing Afghanistan’s Future: Transport Sector Chapter III CURRENT STATUS AND ACCOMPLISHMENTS

• The Super Corridor 4 is intended to integrate Afghani- stan with neighboring countries in the region to en- Current Status hance trade and commerce, leading to economic prosperity in the region and reduction of poverty (Appen - Roads dix 2). • The National Highway network 5 is intended to inte- he road network (Table 1) comprises about 6,000 grate the various provinces, and to link commercial cen- kilometers (km) of national roads, of which 3,300 ters with major resource centers, such as those for oil, T km are primary highways, including 2,400 km of gas, and minerals (Appendix 2). roads that were once paved and now are not. The primary • Provincial roads 6 are designed to link provincial capi- road network comprises the ring road connecting the tals with district headquarters and also to link impor- major cities of Kandahar, Herat, Mazar-e-Sharif and Kabul. tant provincial capitals with one another (Appendix 3). It also includes the international links with Iran, Pakistan, • Rural roads 7 are intended to strengthen farm-to-mar- Tajikistan, Turkmenistan, and Uzbekistan. ket linkages and also to open access to higher-order The Transport Sector Review provided data on roads, to facilitate movement of goods and people national primary and secondary road segments as well as between rural areas and district and provincial cities and beyond. able 1. Major Road Network The total mileages shown in Appendix es 2 and 3 differ T from Table 1 because these estimates are more recent and Road Classification Length (km) are geared to the proposed investment program. The physical condition of the national primary road National Primary 3,280 National Secondary 2,785 network varies from one segment to another (Table 2). For Subtotal 6,065 example, the 615-km Sheberghan-Herat section of the ring road is only partly constructed and is generally unpaved. Province Primary 8,882 Only 26% of national roads remain in fair condition; the Province Secondary 6,043 proportion in poor condition has increased to 54%. Large Subtotal 14,925 sections of the roads in the south (Kabul-Kandahar-Spin Total 20, 990 Boldak) and east (Kabul–Jalalabad–Torkham) have been lost, i.e., they have deteriorated to unpaved status. The con- Source: Asian Development Bank, United Nations Develop- ment Programme, and World Bank, Comprehensive Needs Assessment, Transport Sector, Final Report, August 2003. 4 Four lanes of dual 7-meter carriageway and 2-meter paved shoulders on each side, with a central berge of 2–2.5 meters covering all stretches. 5 Two lanes of 7-meter carriageway and 2-meter paved shoulders on each side. provincial road segments (Appendix 1). For purposes of 6 Provincial roads have two specifications. For ordinary Type 1 segments the recosting exercise, and for additional reference in this they are 5.5-meter carriageway and 1-meter gravel shoulder on each side. paper, Afghanistan’s road network has been classified into For more important segments designated as Type 2, they include 2 lanes of 7-meter carriageway and 1.5-meter one-layer paved shoulder on each four categories, which differ from the classification shown side. in Table 1: 7 Five-meter earthen road with 1-meter shoulder on each side.

Current Status and Accomplishments 7 Table 2. Road Condition of Selected Corridors in Afghanistan

Distance Pavement Condition (km) Bridges to be Corridor (kilometers) Fair Unsatisfactory Bad Rehabilitated

Sher Khan Bandar–Pol-e Khomri 138 32 21 44 Doshi–Salang–Kabul 188 30 108 50 Kabul–Kandahar 510 52 20 423 5 Kandahar–Spin Boldak 101 7 49 34 2 Hairatan–Naibabad 57 57 Naibabad–Pol-e Khomri 164 10 100 54 Naibabad–Mazar-e-Sharif 26 26 Mazar-e-Sharif–Andkhuoy 199 160 39 1 Andkhuoy–Herat 550 550 8 Herat–Delaram 348 75 65 70 Delaram–Zaranj 213 213 Torghundi–Herat 116 116 Andkhuoy–Aquina 35 35

Notes: Pavement Condition: Fair = needs normal maintenance; Unsatisfactory = asphalt commenced crackiing/concrete joints and slab corners cracking; Bad = noasphalt or concrete (unpaved). All roads need paved shoulders 1.5–2.0 meters wide. Source: Staff assessments. crete road in the west (Kandahar–Herat–Torghundi) is only surface. It should also be noted that, in the absence of any partly traffic-worthy due to joint failures and other dam- government-financed initiative, enterprising transporters ages. Only the road to the north (Kabul–Pol-e Khomri– themselves were undertaking patching and minor repair Konduz–Mazar-e-Sharif) is generally in a better condition works, particularly on the Kandahar-Spin Boldak road, to after the Salang Pass. Between Kabul and Salang Pass, re- reduce vehicle-operating costs. placement of 13 bridges, reconstruction on some sections, The remaining network, comprising 2,700 km of sec- and deep patching and strengthening on other sections are ondary national roads and 15,000 km of provincial roads, is required. The Salang Pass, at 3,300 meters elevation, is a either gravel or earthen. The coverage and condition details major constraint, as the road is badly damaged and useable, of the tertiary road network, consisting of village access over about a 10-km section that includes the tunnel, only roads, are simply not known ,9 except that these roads are all for one-way operation. unpaved. Provincial roads, integrating the districts with pro- Though the pavement structure has been severely dam- vincial capitals, total some 9,000 km; similarly, rural roads aged, the road embankments have stood up reasonably well are planned for access to market centers and economic and despite two decades of neglect and conflict conditions. The social services, and will also facilitate the return of refugees effect of military actions is more pronounced in the form of and IDPs. Though the road density of 0.03 km of road per damaged bridges. 8 Some road improvement activities were square km and 0.96 km per 1,000 people is far lower than in undertaken during the Taliban period (1996–2001). This most developing countries, the road net- includes asphalt overlay on a 50-km section of the Kabul– work touches all the major population centers and reaches Kandahar road, beginning from the outskirts of Kabul. Al- —to a certain extent—remote areas. The recorded traffic on though all 50 km received the base course, the wearing the primary network during the preconflict period varied be- course could only be laid on some 40 km. Similarly, about tween 250 and 1,000 vehicles per day. Recent field visits have 195 km of the concrete Kandahar-Herat road was repaired, confirmed that the traffic levels were approaching and, in i.e., transverse cracks were sealed to provide a better riding some cases, exceeding these figures.

8 For example, 11 bridges have been damaged between Kabul and Mazar- e-Sharif, 1 between Kabul and Torkham, and 2 between Kandahar and Spin Boldak. 9 According to rough estimates this is about 15,000–20,000 km.

8 Securing Afghanistan’s Future: Transport Sector More than 2 decades of conflict and lack of mainte- systems. In the event the international forces withdraw their nance, however, have rendered the country’s road network present level of airspace management, which does not of little use. Rural roads have suffered more than others include provision of air traffic control services beyond the from the use of heavy military vehicles and changes in road vicinity of the airfields they operate, a serious flight safety alignment to suit military purposes. The inefficacy is made situation will arise. worse by damaged structures and the presence of mines. Afghanistan’s airspace, due to its strategic geographi- Very few villages have all-weather access, and no tradition cal location, offers one of the shortest routes between Asia of community-based maintenance of rural road infrastruc- and Europe. Keeping Afghanistan’s airspace open to inter- ture exists: rural roads financed by international aid provid- national overflights broadly benefits the international com- ers and constructed during the conflict period as food-for- munity as well as the country itself. work programs through nongovernment organizations In the 1970s, two Afghan carriers provided air trans- (NGOs) have rapidly deteriorated due to lack of mainte- port services, one for international and the other for nance . domestic use, transporting yearly as many as 146,000 pas- The condition of the roads is also reflected in travel sengers and 1.01 million tons of freight. Today the single time. During field visits in March–April 2002, data were national airline, Ariana Afghan Airlines, has lost most of collected on actual travel duration for a four-wheel drive its fleet and staff as a result of the conflict, but since the vehicle on major road sections (Table 3). Further research end of the war it has regained some lost ground. Ariana has revealed that there will be substantial saving in travel time currently owns eight aircraft, which fly to 13 destinations. when road improvements are put in place (Table 4). In some As expected, Ariana has been plagued by weak leadership, of the segments, travel time savings will be in excess of 50%. lack of skilled staff, and poor fleet quality. Foreign airlines, The potential savings in time over international link corri- including the United Nations Humanitarian Air Services, dors augur well for subregional trade expansion over land. are operating flights into and out of Kabul and other desti- There will be considerable economic benefit from increased nations in the country. trade, saved time, and reduced travel cost. Afghanistan has two major air gateways: Kabul Inter- national Airport, serving the capital, and Kandahar Inter- Civil Aviation national Airport, serving the south of the country. The two airports were operated in the past under instrument flight Because of the deterioration in civil aviation infrastruc- rules with day and night operations. Four major domestic ture, MCAT now lacks the capacity to provide an air traffic airports10 with airside pavements provide air connection to management (ATM) service for Afghan airspace. Safety the major cities. In addition, 16 regional domestic airports11 of flights over Afghanistan cannot be assured with the are spread over the country serving the smaller, more existing controllers and technical support staff, and with remote areas. These airports have mainly gravelled airside the available communication, surveillance, and navigation facilities and operate under visual flight rules. The aircraft designs assumed for Afghanistan airports are B767/B747 for international, Table 3. Travel Time on Primary Road Network, B737/ B727 for major domestic, AN24/ March–April 1381/2002 F28 or smaller for regional, and Twin Otter or smaller for subregional air- Average ports. Distance Travel Time Speed Corridor (kilometers) (hours) (km/hr) Although the original construction standard for runways was high, over Kabul–Torkham 2,035 65 29 years of conflict and poor maintenance Kabul–Kandahar 2,720 72 36 Kandahar–Spin Boldak 105 2.5 42 10 At Herat, Jalalabad, Kunduz, and Kandahar–Herat 560 8.5 64 Mazar-e-Sharif. Kabul–Mazar-e-Sharif 399 15 27 11 At Bamian, Bost, Chaghcharan, Darwaz, Mazar-e-Sharif–Hairatan 57 2 38 Feyzabad, Farah, Khowst, Khwahan, Pol-e Khomri–Shirkhan Bandar 164 12 14 Kron Monjan, Meymaneh, Qal’eh-ye Now, Sheberghan, Sheghnan, Taloqan, Source: ADB, UNDP, and World Bank,Transport Sector Review, 2003. Tarin Kowt, and Zaranj.

Current Status and Accomplishments 9 seems to have a master Table 4. Distances and Travel Time on Selected Road Corridors, 1383/2004 plan. The current state Present Travel Time of civil aviation calls Present Travel Time Distance Travel Time After Improve- for a significant initia- TravelTime After Improve- Corridor (kilometers (hours) ments (hours) tive to put the sector at ) (hours) ments (hours) par with international Regional Corridors standards. Dushanbe–Kabul–Karachi 2,035 65 29 Tashkent–Kabul–Karachi 2,720 72 36 In addition to the Ashgabat–Kabul–Karachi 2,805 72 36 massive rehabilitation Dushanbe–Herat–Bandar Abbas 2,818 73.75 41.25 and construction Tashkent–Herat–Bandar Abbas 3,175 57.75 43.75 needs to improve the Ashgabat–Herat–Bandar Abbas 2,342 48.75 34 airports and the critical capacity building National Corridors necessary for MCAT Shirkhan Bandar–Pol-e Khomri 138 5.5 2 to operate and main- Pol-e Khomri–Kabul 228 9.25 3.25 tain them, other criti- Kabul–Kandahar 510 20.5 7.5 cal issues on which Kandahar–Spin Boldak 101 2.5 1.5 Hairatan–Naibabad–Pol-e Khomri 221 9 3 action must be taken to Andkhuoy–Pol-e Khomri 389 15.5 5.5 raise the aviation sec- Andkhuoy–Herat 542 18 7.75 tor to international Herat–Delaram 348 8.5 5 standards include the Delaram–Zaranj 213 6.5 3.5 following: Torghundi–Herat 116 3 2 • negotiation of

Source: Asian Development Bank staff estimates. bilaterals on traffic rights and other concerns, the quality has markedly deteriorated with aging, •a route licensing system for aviation traffic, embrittlement, loss of bitumen, cracking, loss of stone, and • the relationship between Ariana and the Government, potholing. Existing asphalt pavements will need asphalt • corporatization of airport management, overlays to restore proper longitudinal and cross sections • modernization of the ATM sytstem, and surface texture. No airport has standard pavement mark- •regulation of aviation safety, and ings and most have none at all. Runway strips are not well • restructuring of MCAT. defined and, in many cases, strips are now overgrown with weeds and contain other obstructions like rocks, boulders, and war wreckage. Terminal buildings are in poor condi- Road Transport and Traffic tion, with few amenities such as baggage handling facilities, restaurants, modern heating, lighting, toilets, or plumb- The number of vehicles on Afghanistan’s roads has ing. Airport rescue and fire service is also in a poor state, increased significantly over the past 2 years. According to with little equipment and limited mobility. All car parks statistics provided in a recent International Monetary Fund 12 and access roads are in poor condition. (IMF) country report on Afghanistan, transport of goods Existing security arrangements are lax and the trespass of by road increased from 1.9 million tons in 2000 to 3.7 mil- unauthorized persons and animals onto airport property is com- lion tons in 2001 and 5 million tons in 2002. The number of mon. Electricity supply is unreliable at all airports. Control taxicabs nearly doubled from 17,000 in 2000 to 33,500 in tower operations and communications fall far short of mini- 2002. It is estimated that more than 147,000 vehicles were mum international standards. No airport has lighting or more registered in Kabul, which can be extrapolated into about than rudimentary visual aids except for temporary military 304,000 vehicles countrywide (Table 5). Most installations at Kabul and Kandahar. All such facilities would vehicles are privately owned and operated. have to be reconstituted from scratch. Organized, regular airport maintenance activities are currently nonexistent. Airport 12 International Monetary Fund, Islamic State of Afghanistan: plans and surveys are not available and none of the airports Rebuilding a Macroeconomic Framework for Reconstruction and Growth , September 2003.

10 Securing Afghanistan’s Future: Transport Sector The taxi system in Table 5. Estimated Vehicle Fleet, 1382/2003 Afghanistan is wide - % spread and well orga - Estimated Distribution of Estimated nized. According to Vehicles in Vehicles Kabul as % Vehicles MOT, 24 taxi unions Vehicle Type Kabul1 by Type of Country2 in Country registered in Kabul and Taxi 30,000 20.36 66.67 45,000 27 in the provinces Bus 1,350 0.92 75.00 1,800 have a total of 29,131 Van, Minibus 6,000 4.07 20.00 30,000 vehicles. According to Truck 38,000 25.79 80.00 47,500 the Transport Sector Car 72,000 48.86 40.00 180,000 Review , the real number of Trolley Bus 0 0.00 100.00 0 taxis in Kabul is perhaps Total 147,350 100.00 304.300 30,000. Taxis seem to operate freely, with little Notes: 1 MOT estimate adjusted by working group. 2 Working group estimate. adherence to zonal or any Source: Ministry of Transport. other rules. In addition, intermediate size vehicles As noted, the MOT-operated fleet has been severely of all sizes and shapes also transport passengers and goods. depleted. According to the Central Statistical Office, 13 in 2002 the Government owned and operated 22,459 vehicles consisting of 10,913 trucks (MOT: 210), 2,741 buses Railways (MOT Millie buses: 230), and 8,162 cars, but nearly all Currently only a tiny segment of railway 14 exists, bring- these vehicles no longer exist. According to the Transport ing goods from Turkmenistan and Uzbekistan into Sector Review , the centrally owned bus and lorry companies Afghanistan. Afghanistan has previously expressed some and also the trolley bus service have practically collapsed. interest in developing a railway network: a French com- MOT now has some of the Kamaz freight agencies and the pany in mid-1970s carried out a feasibility study, but the Millie Bus Company. MOT has a trolley bus idea was never very seriously pursued. Interest in the idea of department, but no vehicles, workshops, or power supply establishing a railway network to facilitate movement of network, which have all been destroyed. bulk shipments of cotton, coal, cement, and other items is The Afghan private sector has historically played a reviving. dominant role in trucking and it has maintained its presence, including individuals and firms that relocated in Pakistan during the war years. As expected, long-distance Rehabilitation at Work public transport, linking major cities and neighboring countries, has deteriorated due to road and vehicle conditions as and Accomplishments well as suppressed demand for road travel. Security remains a key concern. Urban transport is available, on a Rehabilitation of the transport sector started early in 2002/ limited scale, in Kabul and provincial capitals. 1381 with international assistance. The principal activities ini- Urban transport, once dominated by the public sector, tiated during the period are summarized in Table 6 . is now mostly provided by privately owned buses, taxis, and minivans. Forms of regional transport depend on the state Roads of the roads and the availability of vehicles. People and goods move together, blurring distinctions between passenger and In the road sector, ITGA proposed to undertake (i) commercial freight traffic. Private agencies operate pro- immediate improvement of selected road segments in 1382/ vincial and district routes. Some 165 registered long-dis- 2003, (ii) initiation and partial completion of 2,797 km of tance private bus companies are estimated to be operat- core primary roads and 143 km of secondary roads in 1382– ing—101 based in Kabul, 64 in the provinces—with a total 1383/2003–2004, and (iii) initiation of studies for the me- of 14,007 buses, mostly old minibuses and vans. 15 9.6 km of 1.524-m gauge from Gushgy (Turkmenistan) to Torghundi; 15 km of 1.524-m gauge from Termez (Uzbekistan) to Kheyrabad transship- 13 Statistical Yearbook , 2003. ment point on south bank of the Amu Darya.

Current Status and Accomplishments 11 Table 6. Principal Activities Started in the Transport Sector, 1381/2002

Activity Source of Funds

Emergency works (bridges, culverts) on Kabul–Laghman–Kagha Road MPW Department of Construction Transport Sector Review SIDA Labor-based public works on tertiary roads UNOPS Heavy grading 80 km Kabul-Jalalabad road MPW Department of Construction Heavy grading 45 km Kabul–Kandahar road MPW Department of Construction Rehabilitation of Kandahar–Spin Boldak road JFPR Procurement of 274 buses for Millie Bus India (126 more to come) Procurement of 6 buses for Millie Bus Iran (54 more to come) Agreement signed for rehabilitation of Kabul airport runway IDA, UAE, Italy, and others and several road segments

Notes: IDA = International Development Association; JFPR = Japan Fund for Poverty Reduction; MPW = Ministry of Public Works; SIDA = Swedish International Development Agency; UNOPS = United Nations Office of Project Services. Source: Ministry of Finance, 1382 Public Investment Program and Transport Program, March 2003. dium-term rehabilitation of 2,479 km of other roads. ment, and 33 km of the most damaged section was Against this, ITGA has mobilized substantial assistance improved to a well-compacted gravel road. This has funds to finance rehabilitation of roads. Super Corridors reduced the Kandahar-Spin Boldak travel time from 2.5 have received $800 million in financing. The work is in hours to 1.5 hours (average travel speed of 50 km/hr). Sub- various stages of planning, survey, detailed engineering, bid- sequently, under a 15-month design-build civil works con- ding, and construction. About 1,000 km of this primary tract that was awarded in late May 2003, the major works to network is already under construction, with scheduled be carried out are (i) providing base and surface layers of completion by the middle to end of 2004. About $126 mil- pavement to turn graveled or cracked carriageway into lion are committed to more than 1,000 km of the National smooth riding surface, (ii) providing shoulders for safety, Highway network. Some roads are already under construc- and (iii) rebuilding two washed-out bridges to provide ad- tion. Much less has been committed for provincial roads: equate drainage for flash floods in the March-April rainy only about $29 million covering 326 kms. Rural roads re- season. After initial survey and design, work on the road, ceived $42 million. Details of commitments by various aid including 1.5-meter paved shoulders on each side and the providers for the road sector are presented in Appendix 4. two bridges at Argistan and Mail, started in October 2003 Repair work on the 175-km Kabul-Doshi road started and is expected to be completed by 15 August 2004. in August 2003 under the World Bank-financed Emergency Phase I of the US/Japan-financed 483-km stretch of Transport Rehabilitation Project. The road from Kabul the Kabul-Kandahar road is almost complete, with one layer through the 2.7-km Salang Pass to Doshi covers a critical of blacktopping in place by 31 December 2003. Phase II section of the highway that connects Kabul and the south- will be completed by September 2004 involving two more ern provinces with eight northern provinces, and connects layers of asphalt and a 2-meter paved shoulder on each side. Afghanistan to both Uzbekistan via Hairatan port and The road infrastructure component of the Emergency Tajikistan via Shirkhan Bandar port. The road to the north Infrastructure Reconstruction and Rehabilitation Project, and northeast through Doshi is one of Afghanistan’s six in- financed by the Asian Development Bank (ADB), com- ternational links to its neighboring countries. As of De- prises urgently needed repair and rehabilitation to the Pol- cember 2003, 85% of the repair work on the Salang tunnel e Khomri–Mazar-e-Sharif–Sheberghan section of the ring had been completed with blacktopping. road, including international links to Turkmenistan 15 The work to rehabilitate the 103.5-km Kandahar-Spin (Sheberghan-Andkhuoy-Aquina road) and Uzbekistan Boldak road started in November 2002 under force 15 Connected to the Turkmenistan road network through the Atamyrat– account. Grading and repairing of damaged pavement was Imamnazar road, this corridor is used by the World Food Program (WFP) carried out by MPW and the Kandahar provincial govern- to bring in food aid for about 6.5 million people in the northern region of

12 Securing Afghanistan’s Future: Transport Sector (Mazar-e-Sharif/Naibabad-Hairatan road). The total cost Civil Aviation is estimated at $92 million. Subsequently, Japan has made $20 million available under the Japan Fund for Poverty In civil aviation, the 1382/2003 budget called for Reduction to finance rehabilitation of the Naibabad- (i) the return of overflight control to Afghan management Hairatan (55 km) and Naibabad-Balkh (57 km) sections with increased revenues, (ii) the operation of Kabul Inter- of the northern road. Two consultancy contracts have been national Airport to ICAO standards and the return of awarded and initial survey and design work has been international airlines that compete with Ariana, and (iii) ongoing since November 2003. Civil works contractors the phased rehabilitation of domestic airports for domestic were to be mobilized by February 2004. and international operations to ICAO standards of opera- The European Commission has awarded a •26 mil- tion. The New Kabul International Airport Terminal lion (about $31.5 million) contract to a Chinese engineer- project completed its feasibility stage, with construction to ing company, China Railway Shisiju Group Corporation, start at the end of 1383/2004, while the old terminal is for the first reconstruction phase of the vital 222-km Kabul- repaired for domestic flights. Currently some equipment Jalalabad-Torkham road. The contract covers the for the Kabul International Airport has been provided by reconstruction cost of the 75-km stretch of the road from Sarobi to Jalalabad, and signals the start of a two- stage project costing more than •65 million aimed at rehabilitating Afghanistan’s vital trade and transport corridor to its eastern border with Pakistan. Major construction work was expected to begin in mid-Decem- PHOTO ber 2003. In a parallel project, the Government of Pakistan is funding the reconstruction of 70 km of the road from Jalalabad to the border crossing at Torkham. Work on this section of the road was expected to begin at the end of 2003 . Other ITGA accomplishments in the road sector: • Construction of the Maidan Shahr- A fter: astretcohfrestorerd epavedhighwayothnreegionalSuperCorridortothSepiBnoldabkordercrossing Bamian road began in September 2003, with the first phase (road structures and resurfacing) Japan, which will also design and finance the construction to be completed by summer 2004. of the new terminal, likely to be completed by 1384–1385/ • Work is ongoing on the Herat-Islam Qala road, and 2005–2006. was expected to be completed by the end of 2003. The World Bank is supporting runway design and • A design contract has been signed for the Konduz- installation of navigation and other equipment, amounting to $19.3 million. Design of rehabilitation works on the run- Feyzabad road, and bidding of road works was way has started, and equipment for instrument landings and expected by December 2003. air traffic control is under procurement. India provided •A contract was awarded in October 2003 for the Doshi- three Airbus aircraft and will assist with training of person- Konduz–Shirkhan Bandar road project under tender- nel under an ADB-financed technical assistance project. ing; and The total assistance package for the civil aviation sec- •The Transport Sector Review was completed. tor amounts to $9 million in 1381/2002, $16 million in 1382/2003, and $11.5 million in 1383/2004, a total of $37 million. ADB has initiated a study to (i) prepare a civil Afghanistan. ADB is planning to finance improvement of the Turkmenistan side of the road through the Atamyrat–Imamnazar Road aviation master plan, (ii) undertake feasibility studies for Rehabilitation Project at an estimated cost of about $21.5 million. rehabilitating regional airports, and (iii) prepare a program

Current Status and Accomplishments 13 to strengthen MCAT’s implementation capacity. Details expected in 2004 (Appendix 6). The total assistance pack- of commitments by various aid providers for the civil avia- age for the transport sector amounts to $36.4 million, equally tion sector as per the 1382 development budget are pre- divided between India and Japan. MOT has a number of sented in Appendix 5. other proposals, in which no aid provider has yet shown any interest. As mentioned, aid provider concern centers around Road Transport the appropriate role of MOT in the provision of public transport services. In the road transport sector, ITGA is negotiating delivery of 111 buses from Japan. Of the 400 buses pledged by India, 274 have been delivered to date. The balance is

14 Securing Afghanistan’s Future: Transport Sector Chapter IV KEY ISSUES AND CONSTRAINTS

Crosscutting Issues Public Ownership Afghanistan’s transport sector has traditionally been Security characterized by heavy reliance on public ownership, centralization, and archaic organizational arrangements in the ecurity remains a key concern, and the Government public sector. Since the transport services themselves are will need to provide adequate security for the lives often in the hands of the public sector, ministries have there- Sand the belongings of the expatriates and locals who fore not only been engaged in determining policy but also, are working in the sector. Due to security risks, many of and more so, in operations and regulation. the leaders in the contracting and consulting industries are not ready to participate in the development work. This has Efficiency also led to increases in the cost of projects and delays in implementation. The current arrangements do not promote efficiency and often also make it difficult to effectively address mat- Capacity ters of public interest. The evidence may be seen all over the country: roads are not being maintained, transport ser- With present capacity, none of the ministries in the vices are of poor quality, the aviation safety system does transport sector is in a position to deliver its traditional out- not meet international standards, and road traffic safety is put and services. The construction unit of MPW has poor by any standards. This situation is not only a result of almost no equipment (Appendix 7); likewise with MCAT the past conflicts and lack of funds; it also results from and MOT. Lack of skilled staff in ministries is severely inadequate policies and institutional arrangements. The affecting their ability to plan, design, contract, and imple- required reforms include restructuring the transport sec- ment projects. A generation of professional expertise was tor, promoting market-based competition, introducing lost during the conflict, as most of the capable and quali- privatization and commercialization, improving gover- fied staff left the country. The small cadre of professionals nance, and encouraging beneficiary participation and cost who stayed in Afghanistan is reaching retirement age. Due recovery. Some policy and structural reform initiatives are to lack of additional training during the conflict period, a under way; these need to be closely followed. The Trans- large gap in capacity needs to be filled by recruiting and port Sector Review highlighted a number of critical issues 16 training a new generation. The lack of skilled staff has and made recommendations that the Government needs also led to delays in approval of projects and other activi- to consider. Accordingly, as part of the Transport Sector ties. The salary structure of government employees pro- Review , a draft transport sector policy statement ( Appen- vides little incentive for staff to put in extra effort and stay dix 8) was prepared for the Government to consider.T he with the Government. This is now being addressed through review also highlighted the need for restructuring trans- PRR. Many staff who trained under projects or technical port sector institutions, separating operational and regula- assistance are leaving these jobs for better remuneration tory functions, establishing transparent procedures for pro- being offered by the many consultants and contractors now curement and for regulating transport operations, devel- in country, thus leading to further scarcity of skilled staff. oping road financing arrangements and cost recovery 16 In these years, some staff members, including skilled operators and mechanisms in the sector, and promoting private invest- drivers, moved to neighboring countries and elsewhere and acquired skills ment in the sector. based on mechanized road construction methods .

Key Issues and Constraints 15 Cross-Border Trade taxis, buses, and other means of transport, to ensure an equal treatment of both sexes; and (ii) identification and devel- Cross-border trade is constrained by a huge bureau- opment of transport solutions that are responsive to the cracy, corruption, and lack of trade facilitation services such needs of women. as customs warehouse facilities, standardization of bulk Making transport policy more responsive to the needs transport carriers, and other amenities. The Government of women requires developing a structured approach to recognizes this and is very supportive of measures to understanding their needs, identifying instruments to improve trade relations with its neighbors and allow safe address those needs, analyzing the costs and benefits of those and smooth passage of goods from its landlocked territory instruments, and establishing an appropriate policy frame- to warm-water ports in Iran and Pakistan. ITGA has made work. It also requires that women be represented at each considerable headway with policy and institutional reform step of the planning and design process of transport in the transport sector. investments, including their presence on user panels. Gov- ernment agencies, nongovernment and community-based Regulation organizations, and women’s groups that can be mobilized in planning and implementation should be identified and consulted. Gender findings should be included in project The nature of the required regulation varies. Thus, some design. issues are not simply a concern of the transport sector, but The civil aviation sector could be a leader in providing cut across all sectors of the economy: for example, certain equal opportunities, accessibility, and security for women, aspects of environmental control relate to activities in the as both employees and customers, most particularly women transport sectors as well. And the promotion of competi- air travelers. Creating an environment where women can tion is a regulatory activity, which applies throughout the travel freely and safely by themselves, without a close male economy. relative escort, is an essential requirement of Afghanistan’s modern transportation system, in which air travel plays a Accessibility and Gender major part. The groups most in need of this include busi- nesswomen and widows (estimated at 700,000). Two other crosscutting issues are accessibility and gen- A large number of new employment opportunities will der. With regard to these, regulation may include standard be created in the aviation industry in the next 10 years as setting and enforcement, but the issues at hand may capacity building proceeds. The great majority of positions require a more proactive role by the public sector. Accessi- and tasks can be done just as well by women as by men. bility refers to the provision of transport and infrastructure Therefore, many opportunities will arise to recruit and train services at affordable prices to certain communities that women in all facets of administration and operation. Air- would be inadequately served by a purely market-based lines are also employers of many women, in all kinds of approach. These communities often tend to be poor and to positions, from booking clerks, check-in (and other cus- be located in very remote areas of the country or in inac- tomer service) to managers and pilots. cessible parts of urban areas. Gender issues in Afghanistan are complex and deeply rooted in culture and recent experience. The Bonn Agree- Environmental Issues ment requires that the Government ensure the participa- Environmental issues have not previously been of criti- tion of women and the equitable representation of all eth- cal concern to Afghanistan’s leaders or industries. Such nic and religious communities public life. issues can no longer be ignored in the modern globalized Transport can make a big difference in increasing world. All infrastructure-related ministries must issue an women’s productivity and promoting gender equality. In environmental policy and conduct their business in aware- addition to its major contribution to economic growth, ness of that policy, and of national environmental law, when transport plays a crucial role in socially sustainable devel- that is implemented. Environmental aspects and implica- opment by broadening access to health care and education tions should be considered in all administrative, operational, services, employment, and information, and promoting planning, and construction activities. In particular, envi- social cohesion. ronmental features of vehicles and aircraft need to be high The transport sector dimension of gender includes priority. (i) enforcement issues with regard to the use by women of

16 Securing Afghanistan’s Future: Transport Sector Roads and Highways

The Private Sector

MPW must draw on international experience in engaging the private sector in road construction, maintenance, and management. An important opportunity exists for reviving, developing, and upscaling the domestic road construction industry. It may also be possible to commercialize the road department. A Progresishsappening:asteamrollerawtorokasnectioonfthSeuperCorridoriKnandaharprovince number of Afghan road contractors, transporters, and equipment suppliers relocated to neighboring Pakistan Regulating Safety, Security, and and Iran during the past decade as a consequence of Environmental Protection the prolonged state of conflict, where they continue to pursue their respective business activities. Some 17 A new agency for the regulation of safety, security, and 24 small Afghan road construction contractors environmental protection in civil aviation will have to be operate in these two countries and are now eager to return established. Similarly, the regulation of road traffic with to Afghanistan in view of the potential for major develop- regard to safety and environmental aspects specific to the ment activities. However, their equipment capabilities are road sector will have to be entrusted to another agency, also limited, and they will need access to financing and capacity expected to handle registration of licences and vehicles. As building in contract management before they can gradu- concerns aviation and road traffic, Afghanistan will meet ally take up major road construction contracts. Since the internationally accepted standards in regulating safety and beginning of 2002, several of these contractors have security adequately. returned and established offices in Afghanistan in antici- pation of the upcoming development activities. Under the present circumstances, while construction works and large The Handicapped maintenance contracts are being handled by international contractors, local contractors can for some time only Afghanistan has, unfortunately, one of the highest pro- expect to handle part of the maintenance works. For the portions of handicapped and disabled citizens in the world. time being, therefore, MPW will need to maintain limited Most of these people are men who need employment and force account capacity, to perform (routine) road mainte- responsible positions to help regain respect and self-esteem. nance and also to undertake emergency repairs to supple- Due to the critical shortage of staffing in the infrastructure ment the capacity of the private sector. sector, and the need to recruit and train a large number of competent people within a relatively short time, this resource will not be ignored. Toll Collection

As with other taxes and levies, toll collection on national and provincial highways is irregular, unsupervised, 17 With an average annual turnover of about $1 million each, these contractors are mostly working as subcontractors for civil work activities and unaudited. Further, much of the revenue collected from related to earthworks, aggregate and equipment supply, and some base tolls never reaches the central Government. Such revenues course and subbase course works.

Key Issues and Constraints 17 should be an important source of funds for road mainte- all sectors in Afghanistan, the central issue is the role of the nance, which has been very substandard. The Ministry of public sector in the provision of services and in operations. Finance proposes to take over toll collection as a central revenue item. A modern road asset management system is needed. The Transport Sector Review made certain recommendations regarding road sector financing, which are Road Transport and Traffic worth considering (Appendix 9). The current state of road transport and traffic highlights the need for early resolution of key issues such as the Implementation Constraints role of the Government in the provision of transport services, regulating private users, and achieving socioeconomic T he road sector suffers from the following implemen- objectives of accessibility; and the structure of government tation constraints: institutions dealing with the sector. More specifically, • inadequate capacity within MPW to coordinate and institutional reorganization must look into the questions of manage implementation executed by development corporatization of MOT truck and bus operations, eco- partners; nomic deregulation of road transport services and interna- •difficulty in retaining trained staff at current civil ser- tional transport and transit, regulation of safety and other vice salaries because of expanding private sector con- matters of public interest in road traffic, mandatory third- tract job opportunities; party liability insurance, accessibility in urban and rural • security concerns at road building sites; areas, and the aforementioned MOT restructuring. Road • failure to build in mine survey and clearance in user and vehicle regulations must be upgraded to improve roadcontracts and thus insufficient demining capabili- road safety and protect the environment and road infra- ties; and structure. With regard to road user regulation, improve- • aid providers’ own implementation procedures, ment of training, testing, and licensing is in order. In the including differing, complex, and slow procurement matter of vehicle regulation, the focus has to be on design and budget approval procedures. and construction standards, vehicle weight, roadworthiness, vehicle pollution, and vehicle registration. The current state of urban transport is complete chaos. Civil Aviation and Tourism It is constrained by lack of transport capacity, congestion, pollution, lack of accessibility, inadequate route coverage, The Government has decided to restructure the board poor road condition, and lack of depots, stops and termi- of Ariana Airlines and place it directly under the Ministry nals as well as designated road space. Kabul is particularly of Finance. It will soon reconstitute the board and work hard hit; at present, it has no buses or trolley ways. Should toward privatization. these be introduced? The urban transport system needs Ariana may need to be offered protection from com- integrated planning. Vehicle fleet support services are petition for a period of time, for two reasons: (1) the need mostly privately provided, with government workshops to ensure international connectivity, given that the aviation operating poorly, including those at border points. safety and security system in Afghanistan has not been ICAO-certified; and (2) the potential competition for Afghan routes with other regional airlines. Ariana is, how- Railways ever, eventually expected to be profitable and to serve only routes not expected to incur losses in the medium term. In the railway sector, the main issue is whether the Likewise, the small domestic market does not lend itself to country should invest in a wide network of railway com- open competition for the time being, in part on account of munication, following the recommendations of a 1975 study the inadequate facilities at present, but may provide scope by French contractors, or hold it for further review. Mean- for a regulated system designed to encourage the partici- while, it has been decided to establish receiving and dispatch- pation of the private sector. However, air cargo may be lib- ing stations at selected border points with neighboring coun- eralized. In any case, all such issues need to be carefully tries to handle bulk shipments. The other issue is how to get assessed before concrete policy actions are initiated. As with the private sector interested in investing in railways.

18 Securing Afghanistan’s Future: Transport Sector Chapter V STRATEGIC VISION, GOALS, AND KEY PRIORITIES

international linkages with neighboring countries, thereby Strategic Vision and facilitating economic development and reducing poverty Objective through improving access to markets. In the civil aviation and tourism subprogram, the goal is to rehabilitate and improve airports and air transport, he vision of the Government is “to restore and together with tourism services. Such improvements will create the basic transport infrastructure facilities, allow faster travel and improved linkages with the rest of T including roads and airports, to allow better the world and within the country between major cities and operation of necessary public and private transport services towns, thereby facilitating movement of people—includ- in all areas of the country, and international linkages, ing tourists, for whom the natural and historical sites of thereby facilitating economic development through Afghanistan should become an increasingly attractive des- improving access to markets and reducing poverty. The tination—and increasing trade in low-volume, high-value programme focuses on specific interventions in the goods. primary and secondary road network, civil aviation The goal of the road transport and traffic subprogram, 18 infrastructure, and essential public transport.” where the Government’s role is admittedly more regula- The objective of this program is to promote national tory, is to increase, improve, and maintain the vehicle fleet and regional/subregional integration, development, and and facilitate better operation of necessary public and pri- security by restoring, expanding, and improving roads and vate transport services in all areas of the country. highways, civil aviation, and transport services to allow At this stage, the railway subprogram has the limited efficient public and private sector operations in respective goal of taking advantage of the existing railway networks areas of competence, strengthen market and international in neighboring countries that extend to the Afghan border linkages, and create opportunities for the poor to share in the to create facilities for receiving and dispatching bulk ship- benefits of growth and prosperity, thereby eliminating ments in and out of the country, thereby substantially poverty in the foreseeable future (Appendix 10). reducing transport costs and increasing cross-border trade. Goals Key Priorities

The goal of the roads and highways subprogram is to In the CNA for transport infrastructure, the rehabilitate and improve the network of roads and high- following were deemed to be priorities: ways; strengthen domestic linkages between the capital, • investment in the national highway network to facili- all major cities, major commercial, industrial production tate trade and movement of goods and people; and mining centers, and provincial and district headquar- • creation of a road and transport network to integrate ters. Such linkages will achieve total connectivity of the the country and provide connectivity among the road network, enhance national integration, and strengthen country’s 32 provinces, with district headquarters in each province connected to the main national highway 18 Islamic Transitional Government of Afghanistan, Transport Programme of the Public Investment Programme, March 2003.

Strategic Vision, Goals, and Key Priorities 19 to ensure access to Kabul and other major regional • Shirkhan Bandar–Pol-e Khomri–Kabul- cities and market centers; Kandahar–Spin Boldak Super Corridor (1,162 • investment in road infrastructure to provide access to km) that connects Tajikistan through Afghanistan potential centers of economic activities, e.g., areas po- to Pakistan. tentially rich in mineral resources; • Naibabad–Mazar-e-Sharif–Andkhuoy–Herat– • investment in the provincial road network providing Delaram–Zaranj Super Corridor (1,344 km) that communication between provincial towns and district connects Tajikistan and Uzbekistan to Iran headquarters; through Afghanistan. • investment in the rural road network to provide access • Herat-Islam Qala Super Corridor (124 km) open- to markets for agricultural products; ing the gateway to Iran. • investment in roads for security and strategic reasons; • Delaram-Kandahar Super Corridor (216 km), • investment in regional and domestic airports to speed representing an important segment of the famous the movement of people and low-volume, high-value ring road connecting Tajikistan, Turkmenistan, goods within and in and out of the country, and and Uzbekistan through Herat to Kandahar and improved links with important centers that are diffi- on to Pakistan. cult to access because of terrain and geography; and 2. National Highways (2,175 km) promoting trade and • investment in rail dispatching and receiving stations economic linkages and extending Super Corridors to at border points to facilitate bulk shipments from provincial capitals and contributing to peace, security, neighboring countries. stability, economic growth, and national integration. • Farah–Delaram Highway (253 km) connecting Roads and Highways Farah to the ring road, facilitating trade and commerce and allowing smooth passage over the Key priorities in the roads and highways subprogram Farah–Delaram–Kandahar and Lashkar Gah- include the following public investments (Appendix 11): Gereshk segment. 1. Super Corridor/Regional Highway (two-lane expan- • East-West Highway (1,267 km) providing for sion to make four lanes) (2,323 km) fostering regional direct east-west movement of people and goods, trade and economic linkages between Afghanistan and avoiding the roundabout sections of the old ring neighboring countries—Iran, Pakistan, Tajikistan, road and allowing smooth passage over the Herat– Turkmenistan and Uzbekistan: Chaghcharan–Bamian–Charikar + to Doshi + to Maidan Shahr + to Basud via Panjab segment. • North-South Highway 1 (775 Afghanistarsn emotenesasnmdountainoutserraionfferlargcehallengetsoroadbuilderssu cahSsabzaPkasosthne borderofwesterHenraatnBdadghipsrovinces km) providing for direct north- south movement of people and goods from Kandahar to Mazar-e- Sharif, avoiding the very long roundabout sections of the old ring road, also connecting the formerly inacces- PHOTO OF sible central parts of the country with the ring road and allowing smooth SABZAK PASS passage over the stretch Kandahar– Tarin Kowt–Yakawalang–Dara-i- TO GO HERE Suf–Mazar-e-Sharif. • North-South Highway 2 (776 km) providing for direct north- south movement of people and goods from Sheberghan to Delaram avoiding the very long roundabout sections of the old ring road, also connecting the formerly inaccessible central parts of the

20 Securing Afghanistan’s Future: Transport Sector 4. Rural Roads (1,500 km) bringing the hinterland into commercial contact with markets and seats of power. 5. Capacity building, which includes planning, skill development, development and implementation of policy and regulatory frameworks, and administration.

Civil Aviation and Tourism

Key priorities in the civil aviation and tourism subprogram include the following RefuelingothndeilapidatedtarmacaHetraot onefthfeourairporttsobuepgradedtointernationalstandards public investments (Appendix 12): country with the ring road and allowing smooth • Upgrading of Kabul International Airport to a full- passage over the stretch Delaram–Chaghcharan– fledged international airport meeting ICAO standards; Sar-e Pol–Sheberghan. • Upgrading Herat, Mazar-e-Sharif, and Jalalabad air- • Khulm–Eshkashem Highway (478 km) improv- ports to international standards; ing links to the People’s Republic of China allow- • Upgrading 15 major domestic airports at Konduz, ing smooth passage over the Khulm-Konduz- Feyzabad, Bamian, Chaghcharan, Yakawlang, Taloqan-Feyzabad-Eshkashem segment. Sheberghan, Meymaneh, Taloqan, Gardeyz, Khowst, • Asadabad-Ghazni Network Highway (817 km) Zaranj, Bost, Badakshan, Qal’eh-ye Now, and contributing to peace, security, and development Khawahan; of a troubled region allowing smooth passage over • Establishment of an appropriate ATM system that the network Asadabad-Jalalabad-Sarobi-Bagrami- meets international standards; Kabul-Pol-e Alam-Gardeyz-Khowst-Gulam • Construction of hangars and parking bays; Khan + Gardeyz-Sharan-Ghazni + Pol-e Alam- • Construction of training and other related facilities; Shikabad + Zurmat-Sharan. • Development of priority national tourist sites; • Jabal Saraj-Nurestan Network Highway (172 • Improvement of transport and communication with km) improving communication in eastern tourist centers; and Afghanistan allowing smooth passage over the • Promotion of tourism and training. Abalssaraj-Kohistan-Mahmud Raqi-Sarobi + Mihtralam-Nurestan segment. Road Transport and Traffic • Unspecified additional roads (375 km) mostly designed to improve peace and security and ex- Key priorities in the road transport and traffic subpro- tend central control over the region. gram include the following public investments (Appendix 3. Provincial Roads (4,484 km) improving the adminis- 13): trative, trade and economic contacts between district • Support Afghan International Transport, managing a headquarters and respective provincial capitals and 75-truck fleet facilitating movement of strategic ma- between important district headquarters: terials to remote areas; • provinces that have type 1 and type 2 roads: • Support Millie Bus Company managing a fleet of 963 Badakshan, Baghlan, Konar, Lowgar, Herat, buses, mostly in Kabul and other major urban centers, Paktika, Nimruz, Kandahar, and Badghis; and easing pressure on mass transit; • other provincial roads (all type 2). • Revive the trolley bus system in Kabul;

Strategic Vision, Goals, and Key Priorities 21 • Establish/rehabilitate six technical and maintenance • Build capacity, which includes planning, skill workshops, two at Kabul and one each at Kandahar, development, development and implementation of Herat, Mazar-e-Sharif, and Jalalabad; policy and regulatory frameworks, and administration. • Construct four transport terminals in Kabul, reducing pollution and congestion and improving pas- Railways senger comfort; and • Construct/rehabilitate 22 administrative buildings for The key priority in the railways subprogram is public transport management. These buildings house trans- investment in the c onstruction of Railway Dispatch and port companies and also representatives of MOT pro- Receiving Stations (DRS) at Islam Qala, Torghundi, viding direct public/private interface, thereby Hairatan, Spin Boldak, and Torkham to handle bulk facilitating service and regulation of the transport shipments from and through neighboring countries industry. (Appendix 14). •Regulate the vehicle fleet, including registration, drivers’ licensing, inspection, weighing stations, and transport management.

22 Securing Afghanistan’s Future: Transport Sector Chapter VI OUTCOME/SERVICE DELIVERY INDICATORS AND TARGETS

the number of domestic and international airports func- Roads and Highways tioning as per ICAO standard (Appendix 15). Expected results in the civil aviation subprogram dur- he key outcome/service delivery indicator in ing the first 3 years include roads and highways is to increase the availabil- • upgrading of Kabul International Airport; T ity and improvement of paved roads as measured • raising of three airports at Herat, Jalalabad and Mazar- by kilometers of paved roads per 1,000 people (Appen- e-Sharif to appropriate ICAO international standards, dix 15). all capable of handling increasing numbers of land- Expected results in the road subprogram during the ings by foreign carriers; and first 3 years (2002–2004/1381–1383) include • completion of upgrade on some of the 15 domestic/ • improvements of selected road segments, using MPW, regional airports, operating according to ICAO-ap- provincial, and local contractor resources; proved standards for domestic airports. • rehabilitation by 2005/1384 of major segments of the During the following 4 years, expected results include Super Corridors, such as Shirkhan Bandar–Pol-e further upgrading of four international airports at Herat, Khomri, Doshi–Salang–Kabul, Kabul–Kandahar, Kabul, Jalalabad, and Mazar-e-Sharif and of 15 domestic/ Kandahar–Spin Boldak, Hairatan–Naibabad, and regional airports, all domestic and international airports Naibabad-Pol-e Khomri; and operating to international standards (ICAO), able to handle • initiation and partial completion of 1,333 km of Na- an increasing number of landings by foreign and domestic tional Highway, 2,973 km of provincial roads, and 900 carriers. km of rural roads. The target in the civil aviation sector is to complete The 4 years 2007–2010/1386–1389 are expected to the upgrading of four international airports at Kabul, result in initiation and partial completion of 2,323 km of Super Herat, Jalalabad, and Mazar-e-Sharif and 15 major Corridor, 842 km of National Highway, 1,982 km of provin- domestic airports. The upgrading work will continue cial roads and 600 kilometers of rural roads. Further studies through 2015 while construction will commence on one will be completed for additional road segments to be rehabili- new international airport at Lowgar near Kabul. tated/improved in the years 1386–1389. The key outcome/service delivery indicator for tourism In 2003/1382, Afghanistan had 0.15 kms of paved is the number of sites developed. The effort is directed toward roads per 1,000 people. The target is to raise this to 0.23 reviving the moribund sector and bringing back the tourists km per 1,000 people in 2010/1389 and 0.46 km per 1,000 who are staying away from Afghanistan for various reasons, people in 2015/1394, both well within the present range primarily security and amenities. The target is to develop for comparable developing countries (also Appendix 11). 20 tourist sites by 2010/1389 and another 10 by 2015/1394. Civil Aviation and Tourism Road Transport and Traffic

The key outcome/service delivery indicator in civil The key outcomes/service delivery indicators in road aviation is improvement in air transport as measured by transport and traffic are the number of vehicles per 1,000

Outcome/Service Delivery Indicators and Targets 23 people, and the number of minibuses per 1,000 urban population (Appendix 15) Railways In road transport and traffic sector, the immediate results in the next 3 years (2002-2004/1381–1383) are The key outcomes/service delivery indicator in rail- • beginning the restoration of mass public transporta- ways is construction of Dispatch and Receiving Stations, tion in Kabul and other major cities; of which none now exist. • strengthening intercity and interregional public trans- In the railway subprogram, results in the first 3 years port and goods movement; will focus exclusively on the establishment of five Dispatch • providing support facilities for the road transport sec- and Receiving Stations at Islam Qala, Torghundi, Hairatan, tor; and Spin Boldak, and Torkham together with other facilities, • developing and implementing policy and regulations such as customs complexes, truck parking, and dedicated to regulate road traffic, improve road safety, and warehouses. During this period, capacity building for reduce environmental pollution. operation and maintenance will be undertaken. Further- Over the following 4 years, these programs are to be contin- more, an in-depth review of the 1975 study containing the ued for further improvement of road transport and traffic. proposal for a national railroad system will be completed. In 2003/1382, Afghanistan had 13.71 vehicles per Over the next 4 years, operation, maintenance, and 1,000 people. The target is to raise this number to 26.71 by improvement of five Dispatch and Receiving Stations at 2010/1389 and to 40 by 2015/1394, levels achieved by other Islam Qala, Torghundi, Hairatan, Spin Boldak, and comparable developing countries (also Appendix 13). The Torkham, together with other facilities such as customs second target is to raise the number of minibuses from the complexes, truck parking and dedicated warehouses, will current 0.059 per 1,000 people to 0.151 by 2010 and to 0.3 continue, together with capacity building. A new feasibil- by 2015. ity study for a national railroad network will be undertaken. The railway sector target is to construct five such dispatching and receiving stations by the end of 2010/1389.

24 Securing Afghanistan’s Future: Transport Sector Chapter VII COSTING OF OUTCOME/ SERVICE DELIVERY TARGETS

In this recosting exercise, all unit costs based on cur- Roads and Highways rent experiences have been kept unchanged to absorb price and physical escalation, if any. Corresponding projected unit The development program for the roads and high- costs are $0.5 million for National Highways, $0.3 million ways subsector has been conceptualized around integra- for provincial roads type 1, and $0.5 million for provincial tion, development, and security. Integration has been con- roads type 2, and $0.05 million for rural roads. These unit ceived in terms of strengthening regional, national, pro- costs have been derived using information from World vincial, and rural-rural and rural-urban linkages. It is Bank/United States Agency for International Develop- assumed population will grow at an annual rate of 1.92%, ment/ADB/MRRD-financed projects under implemen- rural 1.4% and urban 3.3%. Alternative scenarios are pos- tation, duly accounting for specification and other differ- sible for growth in gross domestic product (GDP). An ences. Using data provided in the Transport Sector optimistic scenario assuming improved security is consid- Review , O&M costs are placed at 0.9% for the Super Cor- ered here, implying annual GDP growth rates of 15% up ridors, 1.4% for National Highways, 3.4% for provincial to 2007/1386 and 10% thereafter. This is the backdrop of roads, and 1.9% for rural roads. Technical assistance has impressive performance in 2003/1382 of nearly 30%, driven been estimated at 1% of total cost. Capacity building costs by agriculture, construction, and other aid-supported relate to strategies, planning, studies, maintenance, devel- investments, and a projected 20% in 2004/1383. Popula- opment, implementation of policy and regulatory frame- tion and GDP growth, combined with improved security, works, and administration. mobility and access; return of the refugees and IDPs; All costs are attributable to the public sector, except a rural-urban migration; domestic business, social and lei- small amount that is communities’ share of rural road main- sure travel; and the rise of market, commercial, urban, and tenance costs. Investment phasing has taken into account mineral production centers, as well as deepened economic, work under way and the gestation period, starting road political, and trade and commerce relationships with neigh- construction, and the likely pace of progress under the boring countries, will place heavy demands on road capac- existing Afghan situation. ity, in terms of both quantity and quality for movement of people and goods. The considerations cited above have played an Civil Aviation and Tourism important role in the design of the proposed road network, specification of different types of roads, and consequently Civil aviation costing is based on airport rehabilita- unit costs of road construction and maintenance (Appen- tion and development, acquisition of air transport equip- dix 11). The program reflects the priorities set by MPW. ment and training, and development of required skills. The The four-lane Super Corridors, which will carry the load airport development plan reflects the priorities and strat- of domestic and regional traffic, are projected to cost $0.75 egy of MCAT. The basic idea is to bring Kabul Interna- million per km. With increased competitive bidding from tional Airport to truly international level in terms of tech- a wider range of domestic and international contractors, nical standards, facilities, and amenities. The cost of this improved security, and increased availability of construc- expansion and upgrading has been estimated at $100 mil- tion materials within the country, the unit cost will go down. lion over the 7-year planning period. Investment phasing

Costing of Outcome/Service Delivery Targets 25 is assumed to be 5% in the first year, 10% in the second velopment (air traffic controllers, pilots, other flight per- year, and 30% in the third year, with the remaining 55% sonnel, maintenance crews, and so many others). O&M is coming in over the last 4 years. Three other airports at taken to be 15%. Herat, Jalalabad, and Mazar-e-Sharif, costing $50 million As for the development of tourism, a more modest each over a 7-year period, will be raised to approach has been adopted in light of the current political international level. Annual phasing will be the same as that and security situation (Annex 12). The pace of growth of for Kabul. The cost of rehabilitation and improvement of the tourist industry will be very slow at the outset, but will two major domestic airports at Konduz and Feyzabad is accelerate in later years. The initial focus has to be on his- estimated at $10 million each over 7 years; rehabilitation torical sites and national parks. It is anticipated that, over of the remaining 13 domestic airports is assumed to cost the planning period, a total of 20 sites (existing and new) $5 million each. will be developed/restored at an average cost of $3.5 mil- The total cost of airport rehabilitation and develop- lion per site. In addition, it is assumed that 50 hotels/ ment is thus estimated at $375 million. It is divided as run- motels/guesthouses will be developed in Kabul and other way (30%), terminal and required facilities (20%), approach roads and parking (10%), air traffic control (15%), aviation safety (5%), and vehicles and equipment (20%). To this, an amount of $20 million is added for a countrywide ATM system. O&M is taken to be 15%. For air transport, it is assumed that 10 wide-bodied and 30 smaller aircraft will be acquired over the 7-year planning period. The total cost is estimated at $350 million, assuming an average price of $20 million each for wide-bodied aircraft and $5 million for smaller planes. The cost of hangars and parking bays is placed at Thisrebuildingproj ecbt etweHeenraatndI slamQ alanearthIeraniabnorderi sbeingfinancedbythIeraniaGonvernment 20% of aircraft cost. O&M is taken to be 15%. Annual tourist sites at an average cost of $0.8 million apiece. Cor- phasing is determined on the basis of assumed growth of respondingly, 25 restaurants will be developed at an aver- air traffic, both passenger and cargo. Given the importance age cost of $0.2 million. Other costs will include transport of civil aviation for a landlocked and mountainous country, and communications, promotion, and training, all of which present estimates could very well be on the conservative are critical for a thriving tourist industry. O&M is taken side. to be 15%. The cost of planning, capacity building, devel- On the manpower side, the situation is desperate. It opment, and implementation of policy and regulatory will be necessary to build virtually everything from scratch. frameworks and administration is estimated to be $28 mil- Particular attention has to be paid to this aspect of plan- lion for 7 years, $4 million a year. Technical assistance has ning, costing, and financing; otherwise, development of civil been estimated at 1% of total cost. The public sector share aviation in Afghanistan will be seriously constrained. Hard of the proposed investments is placed at 100% for airports data are not available on skills required and costs of train- development, 30% for air transport, 60% for skill devel- ing, or the construction and operation of complex training opment and creation of training facilities, 40% for tour- institutions in Afghanistan. An amount of $100 million has ism, and 100% for planning. The average share of the pub- been tentatively allocated to civil aviation manpower de- lic sector in total investment works out to be about 62%.

26 Securing Afghanistan’s Future: Transport Sector •32 drivers’ licensing facilities, one in each province, at Road Transport and Traffic an average unit cost of $50,000; • 320 vehicle inspection facilities, 10 in each province, Much of the road transport cost will be incurred by at an average unit cost of $5,000; the private sector, whether it is for vehicle fleet acquisition • 30 weighing stations at critical stops along highways. or vehicle support services (Appendix 13). Based prima- at an average unit cost of $20,000; and rily on current Kabul prices, average vehicle cost is assumed • $45 million lump sum for transport management fa- to be $7,000 for taxis (old and new), $50,000 for buses cilities. (new), $10,000 for vans/minibuses (old and new), $30,000 O&M is taken to be 15%. for trucks (new), and $10,000 for cars (old and new). O&M Strategies, planning, studies, capacity building, devel- is taken to be 15%. Annual investment phasing is assumed opment and implementation of a policy and regulatory to be 10% in the first year, 15% in the second year, and framework, and administration are assumed to cost about 20% in the third year, with the remaining 55% coming in $67 million over 7 years. Technical assistance has been the last 4 years. estimated at 1% of total cost. Public sector investments con- Vehicle support services include sist of planned MOT investments of about $278.8 million •4 large depots/terminals in Kabul at $10 million each; for a truck fleet, Millie (mini) buses, workshops, a trolley •8 depots/terminals in 4 major cities, 2 each at unit cost bus system, transport terminals and administrative build- of $0.5 million; ings, and costs of vehicle fleet regulation, to the tune of • 32 interprovince bus terminals, one in each provincial about $29 million. Total public sector investments in road capital, at $0.2 million each; transport and traffic for the period are estimated at $353.4 • 35 parking facilities in all major cities at $0.2 million million, or just 5% of the total. each; However, planned investments by MOT have been • 100 bus/taxi stands/stops in Kabul at $10,000 each; included here without prejudice to any final government • 80 bus/taxi stands/stops, 20 each in 4 major cities at decision regarding MOT’s continued involvement in any- $5,000 each; thing other than regulation. The Transport Sector Review • service workshops at 4% of incremental capital invest- recommended corporatization/privatization for most of the ments in vehicles; items included; retention of some of them in the public • 30 highway transporters’ facilities (rest and service sector can be justified on grounds of serving inaccessible facilities) at 100-km intervals along the super corri- areas or serving high-security public interest, or only as an dors, at a unit cost of $1 million each; interim arrangement prior to alternative arrangements. • road traffic management system (electronic traffic signals and related infrastructure), 40 in Kabul and 80 in 4 major cities at $50,000 each; and Railways • vehicle support service at 8 border crossings at a unit cost of $20 million each. Railways dispatch and receiving stations are planned O&M is taken to be 15% (Appendiex 13). at five border points, at a unit cost of $20 million (Appen- Costs associated with vehicle fleet regulation are those dix 14). This cost will be incurred over the first three years. for registration facilities, drivers’ licensing facilities, vehicle Total cost of capacity building is placed at $15 million. Tech- inspection facilities, weighing stations, and transport man- nical assistance has been estimated at 1% of total cost. agement facilities. It is planned to establish O&M is taken to be 15%. • 32 registration facilities, one in each province, at an average unit cost of $0.5 million;

Costing of Outcome/Service Delivery Targets 27 Chapter VIII IMPLEMENTATION STRATEGY, INSTITUTIONAL AND FINANCIAL ARRANGEMENTS, AND CAPACITY

nfrastructure investments need to be underpinned by struction, and maintenance. It will undertake preparation a strong institutional and regulatory framework. It will of bid documents, evaluate bids, and award contracts. The Itherefore be essential to restructure the transport sec- consultants will act as the engineer under the contract, tor institutions to create an efficient transport sector. Fur- review and approve the design prepared by the contractor ther, a strong regulatory framework needs to be put in place on behalf of MPW, and supervise the construction. The to provide efficient services to the public, irrespective of consultants will perform quantity and quality assurance. whether these are provided by the private sector or the pub- The contractors will actually implement large projects. The lic sector. Attention has to be paid to financing arrange- roads will be packaged to be attractive to international bid- ments and cost recovery. Besides, with overall planning, ders under the international competitive bidding proce- strategy articulation, project design, and implementation dures, and it will be easy for MPW to supervise the con- capacity so weak, an exceptional effort would have to be tracts using consultants. made to buy/borrow this capacity from abroad during an The provincial highways will be the responsibility of interim period, while a serious program for Afghanization the provincial governments. Since many of the provincial of Afghan development and administration is put in place governments need to upscale their capacity to be able to for substantial takeover within the planning period. implement projects of such a large nature, MPW will assist them in undertaking the construction activities, using a model similar to that for the Super Corridor and Roads and Highways National Highways. The contract packages will be of a size to be attractive to international contractors. Institutional Structure to Rural roads will continue to be the responsibility of MRRD. These will be smaller road packages and will be Implement the Road Network constructed using local competitive bidding procedures, with the assistance of the local government and the com- MPW will be reformed to be a lean and thin organi- munity. This will help in building local capacity in road zation, whose primary task is countrywide planning of construction. policy and of the countrywide road network, setting of standards (including technical, safety, social, and environmental safeguards), regulation and enforcement functions, and Operation and Maintenance management and contract management of the Super Cor- Arrangements and Financing ridor and National Highways. MPW will be responsible for the contracting out of To maintain the entire road network will require works related to the Super Corridors and National High- approximately $80 million annually. Unless such funds are ways. The construction/rehabilitation of the Super Corri- available, the assets built up in the rehabilitation and con- dors and National Highways will be implemented through struction will be lost to neglect in 5 to 10 years. Therefore, international consultants and contractors, using design/ the Government must provide these funds for road main- build contracts. MPW will contract out the works such as tenance. feasibility and detailed design studies, supervision of con-

Implementation Strategy 29 As assets manager of the Super Corridor and National Local governments, again through local contractors, Highways, MPW will have only a couple of maintenance will do the maintenance of rural roads; in some places it options: (i) it can contract out large corridors to contrac- could as well be performed through community mobiliza- tors on an annual or multiyear specification-based mainte- tion. The financing will have to be from grants-in-aid to be nance contract; (ii) or for some strategic locations and to provided by the central Government, to be complemented take care of emergency situations, it can use its own fleet of by resources from local government and communities on a maintenance equipment and personnel to be able to move 60:40 ratio. quickly, to take care of snow in cases such as that of the Salang tunnel, or of sand dunes, in the case of the Hairatan- Naibabad road. Under the ongoing civil services reform agenda, MPW has taken a proactive role in undertaking priority reforms and reconstruction, starting with the operation and maintenance department in Kabul: it has drafted a clear mandate and terms of reference for the department, deployed staff and machinery, and constructed facilities for workshops and maintenance of road machinery. MPW will apply the experience gained in Kabul to reforming the operation and maintenance departments in its eight provincial departments. O&M will have to be financed from funds generated by the Gov- ernment from its own resources. Ini- IHenraptrovincern outteoSabzaPkass:unpavedandunmaintainedfor2decades tially, until the Government is able to raise some dedicated source of revenue, the funds will Institutional Implications have to come from the national budget. As reforms progress and capacity increases, as fuel distribution around the coun- The various institutions involved in implementing and try is streamlined, and as banking and accounting systems maintaining a road network of this size include (i) MPW, become more efficient, revenue for both capital and main- (ii) provincial governments, (iii) local district governments, tenance road works could be raised by collecting a cess/ (iv) village shuras (councils), (v) MRRD, (vi) contrac- surcharge on fuel. The Government will need to institute tors, and (vii) consultants. road tolls, to start with on roads that have been upgraded; To build, operate, and maintain the Super Corridor as it is enthusiastic about self-financing road maintenance, and National Highway network, MPW will have to have it is already considering imposing tolls soon, and MPW a core dedicated team in the “contract administration has submitted a paper for consideration of the Cabinet on department” to take charge and ownership. It will require the fuel surcharge. various types of expertise in procurement, including prepa- Provincial governments, using contractors procured ration of bid documents, evaluation of bids, negotiations, either through international or local competitive bidding, contract awards, contracts and administration under the will maintain the provincial highways. Since the existing International Federation of Consulting Engineers provincial government capacity is weak, MPW will need (FIDIC), quality control, and accounting and audit. A core to support them in O&M at first. As with the Super Cor- team of 10 professionals is likely to suffice. ridor and National Highways, financing will be from in- To build, operate, and maintain the provincial roads, ternal resources, either through a budget provision or a provincial governments will need to establish a permanent fuel surcharge.

30 Securing Afghanistan’s Future: Transport Sector Road Construction Unit (RCU), a dedicated team of in all areas, including planning, design, procurement, experts whose responsibility will be to carry out (i) mainte- negotiations, contract administration, quality control, nance of provincial roads, (ii) emergency works on national environmental safeguards, social safeguards, gender issues, highways on contract (i.e., paid for by MPW), and in the and others. short to medium term (iii) construct provincial roads. Ini- The Transport Sector Review recommended that tially, RCUs will need MPW assistance in contracting pro- MPW set up a “capacity building department” employing cedures. The RCU in each province may consist of a project three international experts for a 3-year period and other manager, an engineer, and an account and audit person, short-term expertise from time to time. This unit would plus secretarial assistance: a total of 96 professionals plus work closely with a number of staff from the ministry and secretarial staff. provide hands-on training in a number of areas. The main Most provincial roads will be built under contract, but task of this unit would be to facilitate the reform of the since the capacity of local or nearby contractors may be ministry. An alternative would be to establish a project limited, these contractors may subcontract the work management unit (PMU) employing domestic and inter- (under their supervision) to the RCU. In addition, the national experts and staff (including Afghan expatriates), RCU may also accept subcontracted work on a National to manage the entire program of road and bridge construc- Highway that passes through its province. The idea is to tion under MPW, from the feasibility stage right through make the unit self-sufficient and generate some additional to execution, including design, procurement, contract revenue for maintenance of provincial roads. It is recog- administration, and supervision. Such a model will fill the nized that due to location difficulties, many of the prov- void in MPW and create capacity in the ministry within a inces may not attract larger contractors. RCUs are to be specific time frame. Local capacity building will come equipped to perform maintenance, but when the equipment through counterpart staff working with the program man- is not being so utilized, it could be used for construction agement consultants. work under contract. RCUs could thus function as an Afghanistan might draw some lessons for rebuilding enterprise unit, becoming both a cost and revenue center. staff capacity from ADB’s experience in postconflict Cam- This setup could operate in the same way as the zonal work- bodia, although Afghanistan suffered greater infrastruc- shops to be created by MPW under its PRR exercise. ture damage. In Cambodia, ADB found significant num- Local governments, to facilitate local construction bers of engineering and construction staff available in the work under the MRRD and local maintenance for which Ministry of Works, almost all of whom had been trained in they are responsible, will also have to establish a functional the Soviet Union and were out of touch with developments “road cell” having at least one engineer and one account in construction methodology. As Afghanistan’s core group and audit person: a total of 744 professionals will be needed of engineers has also been unable to keep pace with recent in the country’s 372 districts, plus secretarial staff. The vil- developments in road construction, the following approach lage shuras will need to coordinate the work of road con- used by ADB might be considered for Afghanistan. struction by appointing a focal person from village A group of MPW engineers was selected from the resources. In this regard, MRRD’s capacity requirements pool, placed on leave without pay, and assigned to work as need a thorough assessment and much enhancement. staff members of international contracting and consulting The contractors and consultants will be recruited from firms providing construction supervision. Assigned and the market using international bidding procedures. paid by the contracting and consulting firms, staff were Each of these institutional arrangements, at every level, accountable to them. will require a full-fledged office complete with office equip- At the same time, Cambodia’s MPW set up a perma- ment, IT and communications facilities, and vehicles. nent PMU reporting directly to the minister. Another core group of local engineers and accounting and other man- Capacity Building and Institutional agement staff was appointed to this PMU, which received guidance from project implementation consultants funded Strengthening as part of the project. The main disadvantage of this model was that, unlike Since all the institutions to be involved in road con- the ministry staff working for the contractors, the PMU struction, operation, and maintenance were eroded as a had to follow inefficient government procedures and regu- result of the long conflict, the capacity to undertake any lations that became a bottleneck. These problems had to work at present is nonexistent: the capacity must be built be solved by government decrees providing the PMU with

Implementation Strategy 31 fast-track authority. Checks and balances were provided • drafting the new Roads Act; through (i) maintenance of separate project accounts that • preparing a Road Sector Policy and Development Plan; were audited by independent auditors; and (ii) ADB’s review and mission mechanism through which all aspects of implementa- • pressing for establishment of a road fund, either tion were assessed including procurement audit. through tolling, vehicle registration, and/or fuel sur- While such a model helped build the capacity, the charge. ultimate goal of setting up a strong and lean ministry of This last item is urgently needed, to expedite the plans public works with reduced responsibilities to manage road underway and to finance the operation and maintenance of assets and outsourcing of design, construction, and con- the road network. struction supervision to the private sector is yet to be accomplished. Civil Aviation and Tourism Policy Reforms Institutional Setup To implement the proposed 7-year program as envisaged, the Government will have to tackle several policy MCAT used to be responsible for almost all aspects of issues, with a view to restructuring MPW and the provin- civil aviation sector operation including cial and local governments. • operation and maintenance of the country’s 22 airports MPW has taken positive steps towards policy and and the running of the ATM system, reform agenda: as described above, MPW has now estab- • general safety regulations, lished a system for upgrading the national road mainte- • provision of meteorological services, and nance department to meet international standards and • all communication, navigation and surveillance, and requirements for sustaining subregional transit traffic. It electrics and mechanics. has adopted a time-bound action plan for the implementa- The national carrier, Ariana, has theoretically been corp- tion of procurement guidelines, which the Government is oratized but this has not been fully implemented. considering. It has also finalized a report on road financ- A new institutional setup to implement the capital ing and maintenance arrangements, and its draft memo to investment proposed and ensuing operation and mainte- raise revenue through fuel taxes is under cabinet consider- nance activities will have a larger role for the private sector. ation, thus helping expedite partial self-financing of road MCAT will be left with clearly defined roles that focus on construction, operation, and maintenance. • policy and strategy formulation, MPW is also moving toward allowing private sector • planning and budgeting, and operations in the road sector. At present, consultants do all • database creation and maintenance. the planning, design, procurement, and contracting from The country’s airports will be managed by a number the private sector, including the actual implementation of of airport companies. It is expected that these, with the road projects. In September 2002/1381, the Government exception of the airport in Kabul, will essentially have pro- adopted the Law on Domestic and Foreign Investment vincial ownership. The airports will be operationally self- (#803), which effectively opened the entire economy to financing (not necessarily their development). A separate private sector participation. corporate self-financing entity will operate the air naviga- MPW is actively working to upgrade the Super Cor- tion system (ANS) at the airports. Legislation establishing ridor and the Government is working on facilitating trade the airports and ANS corporations will enable the facilities and customs to improve transit of goods from neighboring and services to be privately financed and operated as con- countries. Under the Central and South Asia Trade and cessions. A system for economic regulation of the airports Transport Forum, Afghanistan has agreed to participate in and ANS, comprising mainly self-regulatory arrangements, trade facilitation and build stronger trade and economic will have been established. A fully corporatized Ariana, ties with other countries. Such trade is expected to gener- which will have freedom on commercial and operational ate substantial revenue. issues, will provide most air transport services, supple- Despite the numerous policy issues being tackled by mented by other private sector operators under a licensing the MPW, a number of key steps still to be taken by the system. MPW include More specifically, the impact on MCAT organizational structure will be as follows:

32 Securing Afghanistan’s Future: Transport Sector Human Resources Development

Since most trained personnel were lost during the years of conflict, the human resources required to perform various functions under the new institutional setup may not be readily available in Afghanistan, and assistance from outside to supply the required capacity will need to continue for at least the first 7-year period. Human resource development, however, should start as a matter of urgency, as the skills and knowledge required in the civil aviation sector cover a wide range of disciplines and some require very long training periods. MCAT’s Civil Aviation Training Center

ThmeaitenrminalaMtazare S harifa bovwe illbuepgradedtointernationalstandards needs to be substantially upgraded and strengthened: its curriculum needs to be re- • Ariana will be run without government involvement viewed and coordinated with those of other in commercial or operational matters. For matters per- higher educational institutions that could provide advanced taining to bilateral agreements on the use of Afghan technical training in the sector, and with training institutions airspace, the Government will continue to support abroad that are readily available for specialized training. Ariana so it can reestablish itself and build up its com- For the foreseeable future, responsibility for human petitive position. resource development will rest with the Government. A •A separate licensing division will be needed to handle concerted, broad-based effort needs to be made by the con- applications for licenses and to assess and allocate ten- cerned ministries, including MCAT and the Ministries of ders to run noncommercial domestic services. On Education and Higher Education. domestic routes, applications will be invited from Ariana, Afghan private sector operators, and non- Implementation Arrangements Afghan operators established in Afghanistan. In due course, this division might be transferred to an inde- To implement the vast program, MCAT will need to pendent authority in accordance with the general policy establish a cell comprising expertise in planning, design- laid down in the National Development Framework. ing, procurement, contract administration, accounting, • It may be necessary initially to take over responsibili- auditing, regulatory and legal, safety, air traffic manage- ties from MPW for capital works for airport infra- ment, airport management, training, and others as may be structure. Later, a corporate structure analogous to identified in due course. This team will need support from Ariana or regional corporate structures will be needed consultants (international and domestic) on a whole range to run the airports. This will involve defining the pow- of issues, from planning and implementation of projects to ers of the Government. institutional and policy and regulatory functions. This will • When the ATM system has been modernized, its need to be worked out in greater detail in prioritized pro- operation could also be transferred either to an inde- grams. A capacity building unit is being developed in pendent agency or to a separate corporate entity. MCAT as part of the program management exercise un- • Similarly, when the system of safety regulation is dertaken by the World Bank. restored, it too might be hived off into an organization separate from the central Government. If it is, this function could well be combined with that proposed for the licensing division discussed above.

Implementation Strategy 33 • the Transport Terminal Agency, which will be respon- Road Transport and Traffic sible for building, operation, and maintenance of the terminal buildings to be used by the various unions Institutional Structure to Support from the truck and bus industry. Transportation Activities The Administration Division will be responsible for MOT’s day-to-day office administration, budgeting, finance, audit and accounts, human resources, legal, data The primary function of MOT will be strategic plan- resources, and management and operations. It will also have ning; policymaking; and regulatory, enforcement, and safe- a dedicated department responsible for construction of guard policies related to social issues, the environment, and MOT facilities and procurement of equipment and gender and other crosscutting issues. Operation functions vehicles required by MOT. will be separated from MOT. Most of the transport sec- Private operators, subject to competition, will perform tor—public transport, buses, trucks, and taxis—will be in transport operations. This will apply to the provision of the hands of private operators. taxi, road haulage, and bus transport, and all intermediate The restructured MOT will have four main divisions: services. Subject to international agreements, competition regulation; policy, strategy and planning; commercial is also expected to rule on international routes, including operations; and administration. bus transport and road haulage. The Regulation Division will have three agencies, including • a licensing agency, which will mainly deal with the provision of licenses to individuals/drivers; • traffic management, which will deal mainly with enforcement of laws and regulations, traffic po- licing, safety rules, vehicle over- loading and roadworthiness standards, pollution, and other crosscutting issues of social and gender safeguard and promotion; and • vehicle regulation, which will deal mainly with the registration, taxation, inspection, and roadworthiness testing of vehicles. The Policy, Strategy and Plan- ning Division will be responsible for transport sector planning, including Thitswistingdu stytracikBnadghipsrovincpe arotfthReingRoadconectingAfghanistamns aicnitiews ill rules and regulations for vehicle becomafeourl aS neuperCorridohri ghway safety; pollution standards; public Transport operations will not normally receive any pub- safety; incorporation of social and human rights issues; lic subsidy. However, certain domestic services may be pro- penal acts for violation of laws, rules, and regulations; vided under public service obligations, to ensure that mini- vehicle specifications; and roadworthiness standards. mum standards of accessibility in urban or remote rural The Commercial Operation Division will consist of areas are met. Such public service obligations will be pro- • the Truck Agency, which will be responsible for cured by competitive tendering. operation and maintenance for the truck fleet; The main functions in the transport sector can be iden- • the Millie Bus Company, which will be responsible tified as follows: for operation and maintenance for the Millie bus fleet; • supply of transport services, including intermediate • the Trolley Agency, which will be responsible for trol- services such as freight forwarding, clearing, and other ley bus operation and maintenance; and agency functions;

34 Securing Afghanistan’s Future: Transport Sector • provision and preservation of infrastructure; transport terminal agency. The second option is to either • performance of regulatory activities to address public completely privatize these or to lease them out to private interest issues; and operators. • policymaking and overall monitoring of sector devel- Vehicle fleet regulation, which will undertake activi- opment. ties such as vehicle registration, vehicle taxation, and The Government’s view is that allowing competition and roadworthiness regulations, must remain under government private sector participation will best attain efficiency in the pro- jurisdiction. vision of transport services. Transport services are, in general, best produced subject to the minimum of economic regula- Capacity Building and Institutional tion with regard to entry, capacity, and pricing. In the near future, it will not be possible to privatize Strengthening the Ministry of Transport road haulage and bus transport operations, as the country has received and is receiving a Since all the institutions to be involved in road con- substantial number of donated vehicles. These operations struction, operation, and maintenance were eroded as a will, however, be commercialized as a first step toward result of the long conflict, the capacity to undertake any privatization. work at present is nonexistent: capacity will need to be built at all levels and in all areas of transport. As in case of the other ministries, MOT needs to set up a “capacity build- Implementation of the Program ing department”. This unit will work closely with the ministry staff and the private sector to provide hands-on train- The options for implementing and operating the ing in a number of areas. Capacity building will also take vehicle fleet, including the Afghan international transport, place through the ongoing PRR process. the Millie Bus Company-public bus service system, the MOT staff need to attend long- and short-term courses trolley bus system with its network, and the electrical on various subjects. Kabul University or some technical station and technical workshop, are not broad. The first is institute will need to design specific courses for people who MOT procurement and management of public transport. may be interested in this sector, whether from the public or The second option is MOT procurement of the trucks and private sector. The Government will also need to encour- busses and the trolley system, and the leasing or contract- age the private sector to provide such training courses, both ing out of management to private operators. The third is internal and external. outright privatization. Option 3 seems unviable in the present context, as there may not be many suitors for trolley buses, which are a heavy investment, although truck- Policy Reforms ing and bus operation may be completely privatized. The second option seems to be most viable, as it is an interme- To implement the program as envisaged in 7 years, the diate step toward facilitating private sector growth. The Government will need to tackle several policy issues with a Government is expected eventually to move toward view to restructuring MOT. The Transport Sector Review complete privatization. Until then, trucks, buses, and made recommendations to strengthen and improve MOT’s trolley buses will be operated on commercial terms under service delivery efficiency. The Government is reviewing the truck agency, Millie Bus Company, and trolley agency. those recommendations and will provide its comments soon. However, the bulk of the vehicle fleet will be in the The Government needs to take concrete and positive steps hands of the private sector. toward a policy reform agenda as described below. To implement vehicle fleet support services, which The Transport Sector Policy Statement (Annex 8) pre- include technical and maintenance workshops for the fleet pared as part of the Transport Sector Review is expediting of government-owned trucks, Millie buses and trolleys, and the streamlining of ministries and departments, separating transport terminals for parking of the public and private regulatory functions from operations, developing a regula- vehicles on intercity routes and in major cities, two options tory framework, drafting and implementing standard pro- are considered. The first is that the workshops for the truck, curement guidelines for the sector, and developing a pri- bus, and trolley and the transport terminal be managed by vate sector. the respective commercial units of MOT, namely the truck The Government has improved transparency and agency, the Millie bus agency, the trolley agency, and the accountability in transport sector operations. The Afghan Assistance Coordinating Authority (AACA) has drafted a

Implementation Strategy 35 National Procurement Law and accompanying regula- mulate a mechanism to ensure minimum levels of tions. These have been submitted to the Ministry of Jus- access to road transport in urban and rural areas. tice and are currently under review. AACA has already • Restructure and strengthen MOT for a new focus on completed the first round of procurement training. policy, regulation, and monitoring, and build capac- As indicated above, the Government is encouraging ity; draw up an action plan to accomplish this. private sector participation in the transport sector. In Sep- The Government will need to review existing tember 2002 the Government adopted the Law on policies in the following areas and may need to modify Domestic and Foreign Investment (#803), which effec- them: tively opened the entire economy to private participation. •toll policy, However, the Government needs to move faster on • road transport rules and regulations, some of the other policy issues that will improve the func- • road traffic laws and regulations, tioning of the transport sector, such as the following: • driving license regulations, • Create an enabling framework for market-based com- • scrapping of destroyed vehicles, petition and efficiency in the transport sector; the Gov- • transport services regulations, ernment must corporatize the bus and truck services • urban public (Millie Bus Company) regulations, to open up the market. • carriage of goods laws, • Establish safe and reliable transport services that meet • commercial code of Afghanistan, gender, environmental, and involuntary resettlement • punishment of transport violators, objectives; the Government is again looking at these • transit duties and loading regulations, aspects. • national insurance law, • Improve institutional efficiency and effectiveness of • construction works law, ministries and departments in the transport sector. • law of municipalities, • Establish a regulatory framework for the road trans- • transport operational committee of the Ministerial port subsector. Council , To improve efficiency in the transport sector, the fol- • regulations for organizing activities of the ministries lowing recommendations of the Transport Sector Review of tourism and transport, need to be implemented: •regulations for collection of toll fees, and • Commercialize MOT truck and bus operations; • income tax law. design a project to prepare for commercialization. • Deregulate road transport in the areas of domestic road haulage, bus transport, and taxi operations; market Railways entry and pricing should be free. • Review current arrangements for enabling international It is proposed that MPW, through a newly established transport and transit, and formulate a strategy to Department of Railways, be responsible for implementing progress toward a policy. civil works related to proposed dispatching and receiving • Improve and reinforce the road safety regime and the stations at neighboring countries’ border termini. MPW regulation of other public interest matters (e.g., axle should also be responsible for the operation and mainte- load regulations). nance of all facilities at these stations. MOC, MOT, and • Review the scope for mandatory third-party insurance; MOF will manage and regulate the actual receiving and vehicles in Afghanistan are normally not insured and dispatching of goods, the movement of rolling stock, and no third party insurance system is effective. Manda- the enforcement of customs rules and procedures. MOT tory third party insurance is fundamental to efficient will have to develop regulations pertaining to railways and road traffic as witnessed by the fact that virtually all movement of trucks across borders. Movement of goods countries impose such a requirement. will be regulated by MOC rules, while customs tariff law • Ensure that reliance on market forces does not leave will be applied by MOF. some urban and rural groups physically isolated. For-

36 Securing Afghanistan’s Future: Transport Sector Chapter IX DEVELOPMENT PROGRAM AND BUDGET

he total investment cost of the transport sector • construction and training and related facilities. program is $12.3 billion over the 7-year period. Specific public sector-financed projects in tourism include T This is almost equally divided between the public • identification and development of tourist sites, and private sectors (Appendix 16). Public sector investment • upgrading transport and communication for the tourist is shown in Table 7 below and also in budget format in industry, Appendix 15. Total estimated public sector investment is • promotion of tourism, and $6.1 billion, $5.7 billion in capital expenditure and the • training for tour operators and others. remaining $0.4 billion in O&M. The bulk of the Total investment in road transport and traffic during investment is for roads and highways: $4.8 billion or 79% the planning period is modest, basically covering the vehicle of the total. Public investment for civil aviation and tourism fleet, vehicle fleet support service, and vehicle fleet is projected at $0.8 billion over the planning period, regulation. Specific projects for public sector investment followed by road transport and traffic ($0.4 billion) and include railways ($0.1 billion). • procurement of 75 trucks for Afghan International Major public investments in roads and highways Transport Company, include rehabilitation and improvement of Super Corridors, • procurement of 963 buses for the restructured Millie National Highways, provincial roads and rural roads. Bus Company, Specific road projects include the following segments: • rehabilitation and upgrading of six technical and • Super Corridor: Shirkhan Bandar–Pol-e Khomri– maintenance workshops for MOT-owned trucks and Kabul, Kabul–Kandahar–Spin Boldak, Naibabad– buses, Mazar-e-Sharif–Andkhuoy–Herat–Delaram–Zaranj, • revival of the Kabul trolley bus system with 300 buses, Herat–Islam Qala and Delaram–Kandahar; • construction of four transport terminals in Kabul and • National Highways: Farah Road–Delaram, East-West rehabilitation of 22 administrative buildings around Highway, North-South Highway 1, North-South the country for transport management, and Highway 2, Khulm–Eshkashem, Asadabad–Ghazni • construction of city and interprovince bus depots/ network, and Jabal Saraj–Nurestan network. terminals. In civil aviation and tourism, public investments cover Public investments in railways are for five dispatching airports, air transport, manpower development, and capacity and receiving stations. Given the investment phasing building. Specific public sector-financed projects in civil proposed, three separate projects could be envisaged aviation might include covering separately Islam Qala and Torghundi, Hairatan • rehabilitation and expansion of Kabul International and Spin Boldak, and Torkham. Airport, In all subprograms provisions have been made for • rehabilitation and expansion of selected major regional technical assistance. airports to international standard, The entire amount of the additional public investment • upgrading of 15 regional domestic airports, requirement for the 1383–1389/2004–2010 period will have •acquisition of aircraft, to be financed with fresh commitments from bilateral and • construction of hangars and parking bays at Kabul and multilateral donors. However, commitment cycles are other international airports, and different from investment cycles based on annual

Development Program and Budget 37 disbursement/utilization, because commitments can be in 1383/2004, $426 million in 1384/2005, $1,137 million made on a multiyear basis and project approvals by donor in 1385/2006, $3,689 million in 1386/2007 covering the agencies invariably entail multiyear commitment for period 1386–1388/2007–2009, and $4,904 million in 1389/ disbursement of funds. Furthermore, in the context of this 2010 for the 5 years after that. Much of it is for roads and recosting exercise, additional commit2ments would have highways amounting to $671 million in 1383/2004, $312 to be made by donors in 1389/2010 to finance investments million in 1384/2005, 840 million in 1385/2006, $2,930 during the 1390–1394/2011–2015 period required to million in 1386/2007 covering the period 1386–1388/ achieve targets set for 1394/2015. Detailed commitment 2007–2009 and $3,761 million in 1389/2010 for the 5 years requirements are shown in Appendix 17 and Table 8. The after that. amount of funding commitment required is $932 million

Table 7. Transport Sector Public Investment Program 1383–1389/2004–2010 ($ million)

Total Cost 2007–2010/ 2004–2010/ Subprogram/Project 2004/1383 2005/1384 2006/1385 1386–1389 1383–1389 Roads and Highways 345.01 630.38 848.18 2,930.30 4,753.87 Super Corridor 0.00 0.00 0.00 1,742.53 1,742.53 National Highways 122.83 245.65 298.03 420.85 1,087.35 Provincial Roads 148.66 297.32 445.98 594.64 1,486.60 Rural Roads 7.50 15.00 22.50 30.00 75.00 Capacity Building 10.00 10.00 10.00 40.00 70.00 Technical Assistance 2.79 5.63 7.82 28.18 44.42 Operation and Maintenance 53.24 56.78 63.86 74.10 247.97

Civil Aviation and Tourism 41.07 83.50 216.42 484.31 825.30 Airports 18.50 37.00 111.00 213.50 370.00 Air Transport 5.55 12.60 19.80 88.05 126.00 Manpower 3.00 6.00 18.00 33.00 60.00 Capacity Building 7.80 11.20 23.60 53.40 96.00 Technical Assistance .76 1.51 3.33 8.68 14.28 Operation and Maintenance 5.47 15.19 40.69 97.68 159.02

Road Transport and Traffic Vehicle Fleet, Support Services, and Regulation 30.37 45.55 60.73 167.01 303.65 Capacity Building 6.10 9.94 14.18 37.10 67.31 Technical Assistance 0.69 1.12 1.60 4.19 7.61 Operation and Maintenance 3.75 5.63 7.50 20.63 37.50

Railways Dispatching and Receiving Stations 40.00 40.00 30.00 14.00 137.00 Capacity Building 2.00 3.00 4.00 6.00 15.00 Technical Assistance 1.00 1.00 1.00 3.00 6.00 Operation and Maintenance 2.00 4.00 5.00 5.00 16.00

Total Capital Expenditure 471.98 824.11 1,178.61 3,657.53 6,132.24 Operation and Maintenance 407.53 742.52 1,061.57 3,460.13 5,671.75

Source: Staff estimates.

38 Securing Afghanistan’s Future: Transport Sector Table 8. Transport Sector Financing Requirement 1383–1389/2004–2010 ($ million)

Total Financing Requirement 2004/ 2005/ 2006/ 2007/ 2010/ 2004–2010/ Subprogram/Project 1383 1384 1385 1386 1389 1383–1389 Roads and Highways 670.78 312.43 840.36 2,930.30 3.760.65 8,514.52 Super Corridor 0.00 0.00 0.00 1,742.53 903.13 2,645.66 National Highways 122.83 245.65 298.03 420.85 1,369.15 2,456.50 Provincial Roads 445.98 0.00 445.98 594.64 1,345.20 2,831.80 Rural Roads 22.50 0.00 22.50 30.00 75.00 150.00 Capacity Building 10.00 10.00 10.00 40.00 40.00 110.00 Technical Assistance 16.24 0.00 0.00 28.18 28.18 72.60 Operation and Maintenance 53.24 56.78 63.86 74.10 0.00 247.97

Civil Aviation and Tourism 106.92 38.99 195.09 484.31 1,062.08 1,887.38 Airports 55.50 0.00 111.00 203.50 1,000.00 1,370.00 Air Transport 5.55 0.00 19.80 88.05 0.00 126.00 Manpower 27.00 0.00 0.00 33.00 0.00 60.00 Capacity Building 7.80 11.20 23.60 53.40 53.40 149.40 Technical Assistance 5.60 0.00 0.00 8.68 8.68 22.96 Operation and Maintenance 5.47 15.19 40.69 97.68 0.00 159.02

Road Transport and Traffic 43.62 61.11 82.41 228.93 41.29 457.36 Vehicle Fleet, Support Services, and Regulation 30.37 45.55 60.73 167.01 0.00 303.65 Capacity Building 6.10 9.94 14.18 37.10 37.10 104.41 Technical Assistance 3.41 0.00 0.00 4.19 4.19 11.80 Operation and Maintenance 3.75 5.63 7.50 20.63 0.00 37.50

Railways 111.10 13.94 19.18 45.10 40.10 229.41 Dispatching and Receiving Stations 100.00 0.00 0.00 0.00 0.00 100.00 Capacity Building 6.10 9.94 14.18 37.10 37.10 104.41 Technical Assistance 3.00 0.00 0.00 3.00 3.00 9.00 Operation and Maintenance 2.00 4.00 5.00 5.00 0.00 16.00

Total 932.42 426.46 1,137.03 3,688.63 4.904.13 11,088.67 Capital Expenditure 867.97 344.87 1,109.99 3,491.23 4.904.13 10,628.18 Operation and Maintenance 64.45 81.59 117.04 197.40 0.00 460.40S

Source: Staff estimates.

Development Program and Budget 39 APPENDIXES

Appendix 1. Road Lengths in Different Road Categories

Primary Roads Provincial Roads cont’d. No. Road Length (km) No. Road Length (km) 1 Kabul–Mazar-e-Sharif 427 2 Chekhansur–Zaranj 62 2 Mazar-e-Sharif–Sheberghan 150 3 Delaram–Farah 133 3 Sheberghan–Andkhuoy–Meymaneh 209 4 Farah–Chekhansur 149 4 Maymaneh–Herat 410 5 Farah–Lashjavin–Chekhansur 167 5 Kabul–Ghazni 149 6 Lashjavin–Zaranj 89 6 Ghazni–Qalat 219 7 Farah–Shindand 149 7 Qalat–Kandahar 137 8 Shindand–Klainazarkhan 131 8 Kandahar–Herat 588 9 Shindand–Shahrak 299 9 Pol-e Khumri–Kunduz–Shirkhan Bandar 169 10 Enjil–Gorian 64 10 Hairatan–Durahi Mazar 48 11 Gereshk–Lashkar Gah 33 11 Kabul–Jalalabad–Torkham 224 12 Lashkar Gah–Garamsir 60 12 Herat–Torghundi 119 13 Garamsir–Desho 125 13 Herat–Qala Islam 224 14 Desho–Charburjak 147 14 Kandahar–Spin Boldak 105 15 Charburjak–Zaranj 108 15 Kabul–Gardeyz–Khowst 220 16 Gereshk–Musakala 56 Total (km) 3.398 17 Gereshk–Naozad 100 18 Musakala–Bandekajaki 94 Secondary Roads 19 Argandab–Khakrez 65 No. Road Length (km) 20 Khakrez–Nish 68 1 Herat–Chaghcharan 351 21 Tarin Kowt–Kehrawod 60 2 Delaram–Parchaman–Masjednegar 315 22 Kehrawod–Kajran 72 3 Bamian–Chaghcharan 344 23 Trinkot–Oruzgan 92 4 Bamian–Charikar 120 24 Oruzgan–Malistan 84 5 Bamian–Doshi 160 25 Malistan–Nawar 155 6 Bamian–Mazar-e-Sharif 380 26 Nawar–Ghazni 99 7 Kandahar–Tarin Kowt–Shaikh 451 27 Ghazni–Sharan 56 8 Konduz–Taloqan–Eshkashem 317 28 Sharan–Zargonshar 48 9 Jalalabad–Asadabad–Kamdesh 220 29 Zargonshar–Wazakhowa 107 10 Gardeyz–Sharam–Orgon 115 30 Wazakhowa–Voormamy 36 Total (km) 2,773 31 Kalat–Shinkai 70 32 Shinkai–Shamalzai 35 Provincial Roads 33 Ghazni–Pol-e Alam 80 No. Road Length (km) 34 Shekhabad–Chak–Behsood 110 1 Delaram–Chekhansur 202 35 Gardeyz–Ghazni 86

Appendixes 41 Appendix 1. Road Lengths in Different Road Categories (cont’d.)

Provincial Roads cont’d. Provincial Roads (continued) No. Road Length (km) No. Road Length (km) 36 Gardeyz–Jajee 69 46 Dashteearchy–Khojaghar–Yangakala– 162 37 Pol-e Alam–Jajee 63 Rostag 38 Garghaiy–Laghman–Nurestan 67 47 Konduz–Abdanemiralam–Kholm 113 39 Asadabad–Pech 45 48 Ageha–Khamyab 85 40 Sarobi–Mahmudragi 88 49 Sheberghan–Dowlatabad 100 41 Jabal Saraj–Panjsher–Zeebok 335 50 Sheberghan–Sar-e Pol 55 42 Khenjan–Andarab–Nahrin–Baghlan 260 51 Sar-e Pol–Sangeharak–Bulkhab 146 43 Taloqan–Worsaj 91 52 Sar-e Pol–Bolcheragh 80 44 Feyzabad–Ragh 52 Total (km) 5,364 45 Imamsahib–Dashteearchy 62

Source: Transport Sector Review, October 2003.

42 Securing Afghanistan’s Future: Transport Sector Appendix 2. Roads and Highways Network

Super Corridor: Dual carriageway (4-lane) highway, (2 National Highways A cont’d. lanes of 7-m carriageway and 2-m shoulders; already in S No. Stretch Length (km) progress/committed in most stretches. 14 Helmand Province: Gereshk–Lashgar Gah 50 S No. Stretch Length (km) 15 Kandahar Province (Kandahar on Ring Road) 1 Shirkhan Bandar–Pol-e Khomri 138 16 Zabol Province (Qalat connected to Ring Road) 2 Pol-e Khomri–Doshi 47 17 Oruzgan Province: Kandahar–Tarin Kowt 173 3 Doshi–Salang–Kabul 170 18 Ghazni Province (Ghazni on Ring Road) 4 Kabul–Ghazni–Kandahar 483 19 Paktika Province: Ghazni–Saran 56 5 Kandahar–Spin Boldak 103.5 Saran–Zurmat 60 6 Hairatan–Naibabad 57 20 Paktiya Province: Ghazni-Zurmat–Gardeyz 86 7 Naibabad–Pol-e Khomri 164 21 Khost Province: (a) Gardeyz–Khost 105 8 Naibabad–Mazar-e-Sharif 26 Khost–Gulam Khan 60 9 Mazar-e-Sharif–Andkhuoy 197 22 Lowgar Province: (a) Kabul-Pol-e Alam 62 10 Andkhuoy–Herat 550 (b) Gardeyz–Pol-e Alam 62 11 Herat–Delaram 348 (c) Pol-e Alam–Shikhabad 41 12 Delaram–Zaranj 223 (Syeda Bad–Vardak 13 Herat–Torghundi 119 23 Nangarhar Province: 14 Andkhuoy–Aqina 37 (a) Kabul–Bagrami–Kotla 175 15 Herat–Islam Qala 124 (b) Lataband–Kohgani–Jalalabad — 16 Kabul–Jalalabad 142 (Jalalabad also on international link) 17 Jalalabad–Torkham 82 24 Vardak Province: Panjab–Hisa-i-Awal– 154 18 Delaram–Kandahar 216 Basud (Maidan Shahr on Ring Road) Total (Super Corridor) 3,226.5 25 Kabul Province (Kabul on Ring Road) 26 Laghman Province: Jalalabad–Mihtarlam 24 National Highways: 2 lanes, 7-m carriageway, 2-m paved shoulders on either side. 27 NuristanProvince: Mihtarlam–Nuristan 43 28 Konar Province: Jalalabad–Asadabad 102 A. Road Connections to Provincial Headquarters. 29 Kapisa Province: Jabal Saraj–Kohistan– 105 S No. Stretch Length (km) Mahmud Raqi–Nijrab–Sarobi 1 Badakhshan Province: (a) Feyzabad–Taloqan 120 30 Parvan Province (Charikar on Ring Road) (b) Feyzabad–Baharak–Zebak–Eshkamesh 170 31 Bamian Province: Charikar–Bamian 160 2 Takhar Province: Taloqan–Konduz 75 32 Ghowr Province: Bamian–Yakawlang– 353 3 Konduz Province: Khulm–Konduz 113 Panjab–Lalwa Sarjangai–Chaghcharan (Konduz–Pol-e Khomri also connected to international link Pol-e Khomri–Konduz– B. Roads Leading to Mines, Oil and Gas Locations Shirkhan Bandar) S No. Road Length (km) 4 Baghlan Province: (Pol-e Khomri connected 33 Sheberghan–Sar-e Pol 55 to Ring Road) 34 Maidan Shahr–Bamian 170 5 Samangan Province (Aybak connected to 35 Doshi–Kahmand 140 Ring Road) (Road joins Charikar–Bamian near Shibar) 6 Balkh Province (Mazar-e-Sharif on Ring Road) 35 (a) Pol-e Alam–Khoshi 17 7 Jowzjan Province (Sheberghan on Ring Road (b) Herat–Shedai 10 8 Sar-e Pol Province (incl. at #33 below—leading (Balance of distance part of Srl #41 below) to gas and oil resources) (c) Sheberghan–Khwaja Di Koh (already 9 Faryab Province (Meymaneh on Ring Road) considered part of National Highway) 10 Badghis Province (Kale Now connected to (d) Dara-i-Suf (considered part of Super Ring Road) Corridor) 11 Herat Province (Herat on Ring Road) (e) Sabazak Pass (already considered part of 12 Farah Province: (a) Farah Road–Farah 70 National Highway) (b) Farah–Bakwa–Delaram 133 (f) Khowst (Metun)–Shikh Amnir (Gurbuz) 7 13 Nimruz Province (Zaranj connected to Ring (g) Khanishin–Lashkar Gah 218 Road at Delaram)

Appendixes 43 Appendix 2. Roads and Highways Network (cont’d.)

National Highways B cont’d. C. Other Roads cont’d. S No. Stretch Length (km) S.No. Stretch Length (km) (h) Bangi–Khawaja Ghar–Yangi Kala 105\ 41 Herat–Mahala-e-Bala (Karukh–Sar-e-Kuch 290 (i) Herat–Kamatkala (already considered (Obe)–Chishte Sharif–Salma–Shahrak part of National Highway) (Ghowr)–Gard Holang iintersection with (j) Baharak–Jurm 18 Delaram–Taywara–Chaghcharan–North- South 2 Highway) C. Other Roads 42 Chaghcharan–Belchiragh–Sar-e Pol 269 37 Delaram–Ghowr (Taywara) 217 43 Yakawlang–Dara-i-Suf 150 38 Ghowr (Taywara–Chaghcharan) 235 44 Dara-i-Suf–Sholgara–Mazar-e-Sharif 157 39 Tarin Kowt–Day Kundi 210 40 Day Kundi–Takawlang (only Day Kundi– 85 Total (National Highways) 4,913 Rd junction of Bamian–Chaghcharan considered to avoid duplication with East-West Highway)

Note: — = not available. Source: Ministry of Public Works.

44 Securing Afghanistan’s Future: Transport Sector Appendix 3A. Provincial Roads* by Province and District

S No. District Stretch Length (km)

Takhar Province 1 Darqad Darqad–Yangi Kala 50 2 Yangi Kala Yangi Kala–Khwaja Ghar (already part of NH) 3 Taloqan Khwaja Ghar–Taloqan (meets NH Taloqan–Konduz already under construction) 4 Bangi Taloqan–Bangi (already part of NH Taloqan–Konduz under construction) 5 Chal Bangi–Chal — 6 Farkhar Chal–Farkhar 47 7 Warsaj Farkhar–Baghe Dasht (Warsaj) 55 8 Eshkamesh Bangi–Eshkamesh (already part of NH Konduz–Taloqan–Feyzabad- Eshkashem) 9 Kalafgan Farkhar–Kalafghan (part of road connection under NH—refer NH 10 Table Srl1 (a)) 10 Rustaq Rustaq–Cha Ab 48 11 Cha Ab Cha Ab–Yangi Kala 35 12 Taloqan Chal–Taloqan 29 Total 274

Badakshan Province 1 Baharak Baharak–Jurm (already part of NH) 2 Jurm Jurm–Sekwa (Kuran Wa Munjan) — 3 Kuran Wa Munjan Sekwa–Zebak 95 4 Zebak Zebak–Ishkashim (already part of NH) 5 Eshkashem EIshkashem–Baharak (already part of NH) 6 Baharak Baharak–Zebak (already part of NH) 7 Wakhan Ishkashim–Khandud 91 8 Feyzabad Baharak–Feyzabad (already part of NH) 9 Keshem Feyzabad–Keshem (already part of NH) 10 Shar-e-Bazurg Keshem–Shar-e-Bazurg 60 11 Ragh Shaar-e-Bazurg–Murch (Ragh) 56 12 Khwahan Murch–Khwahan 70 13 Shighnan Faizabad–Shighnan (joins Faizabad–Baharak leg of NH) 90 14 Darwaz Shighnan–Nusai (Darwaz) 110 15 Parwan-Badakshan Zenya (Parwan)–Sekwa (Kuran Wa Munjan) 155 (interprovince) Total 727

Herat Province 1 Herat Herat–Mahala-e-Baba (Kuruh)–Sar-e-Kucha (Obe) (to be part of East-West Highway) 2 Obe Sar-e-Kucha (Obe)–Chishte Sharif (to be part of East-West Highway) 3 Kohsan Kohsan–Ghoryan (major part covered under RH) 10 4 Ghoryan Ghoryan–Zenda Jan 32 5 Zenda Jan Zenda Jan–Rawza Bagh (Guzara) 64 6 Injil Rawza Bagh–Injil (already part of RH) 7 Injil Injil–East-West Highway junction — 8 Pashtun Zarghun Rawza Bagh–Gim (Pashtun Zarghun) 60 9 Pashtun Zarghun Gim–Sar-e-Kucha — 10 Adrakhan Rawza Bagh–Adrakhan (already part of RH) 11 Shindand Adraghan–Shindand (major part covered as RH) 10 12 Farsi Shindand–Farsi 150 13 Gulran Kohsan–Gulran 85

* Connecting provincial headquarters to district headquarters and/or district headquarters to district headquarters; 7-m carriageway with 1.5-m hard shoulder on either side. Note: NH = National Highway; RH = Regional Highway/Road; —= not available.

Appendixes 45 Appendix 3A. Provincial Roads by Province and District (cont’d.)

S No. District Stretch Length (km) 14 Kushk Gulran–Kushk 70 15 Kush Kuhna Kushk–Kushk Kuhna (part covered as RH) 40 16 Gulran Gulran–Zulfiqar 80 Total 601

Konduz Province 1 Ali Abad Ali Abad–Khanabad 37 2 Khan-Abad Khan-abad–Char Dara (already part of NH) 3 Char Dara Char Dara–Qalizal 62 4 Imamsahib Imamsahib–Archi 45 5 Imamsahib Imamsahib–Qalizal 67 6 Chardara Char Dara–Aliabad (already part of RH) Total 174

Baghlan Province 1 Baghlan Baghlan–Baghlan Jadid 30 2 Doshi Doshi–Khanjan (already part of RH) 3 Khanjan Khanjan–Banu (Andarab) 38 4 Tala wa Barfak Bazartala–Dyab Mikh Zarin (already part of NH) 5 Dyab Mikh Zarin Dyab Mikh Zarin–Kahmand (already part of NH) 6 Khowst wa Firing Khowst Wa Firing–Burka 70 7 Nahrin Bashiqala–Burka 23 8 Doshi Doshi–Bazar Tela (already part of NH) 9 Baghlan Baghlan–Bashiqala (Nahrin) 50 10 Parwan-Baghlan Hise-i-Awal–Panjsher–Khost Wa Firing 80 (interprovince) TOTAL 291

Ghor Province 1 Saghar Saghar–Tolak 74 2 Tolak Tolak–Sharak 60 3 Sharak Sharak–Chaghcharan (to be part of of East-West Highway) 4 Chaghcharan Chaghcharan–Lal Sarjangl (to be part of East-West Highway) 5 Taywara Ghowr–Shahrak 110 6 Taywara Ghowr–Pasaband (to be part of North-South Highway 1) 7 Pasaband Pasaband–Shahrak (already considered part of North-South Highway 1) Total 244

Bamian Province 1 Waras Waras–Panjab 24 2 Panjab Panjab–Yakawlang (to be part of East-West Highway) 3 Yakavlang Yakawlang–Bamian–Sheber (to be part of East-West Highway) Total 224

Konar Province 1 Nurgal Nurgal–Khas Konar 25 2 Khas Konar Khas Konar–Chawki 10 3 Chawki Chawki–Narang (already part of NH) 4 Narang Narang–Sarkany (already ipart of NH) 5 Sarkany Sarkany–Marawar (already part of NH) 6 Asadabad Asadabad–Mano Ghai (Pech) 7 Pech Mano Ghai–Kandai (Chapa Dara) 15 8 Bar Konar Morawar–Asmar 26

46 Securing Afghanistan’s Future: Transport Sector Appendix 3A. Provincial Roads by Province and District (cont’d.)

S No. District Stretch Length (km)

9 Dangam Asmar–Dangam 12 10 Narai Dangam–Narai 40 11 Nangarhar–Konar Jalalabad–Koma–Goshta–Lalpor 39 (interprovince) TotalL 195

Nangarhar Province 1 Hisarak Ragha–Mama Khel (Sherzad) (already part of NH except 5 km) 5 2 Sher Zad Mama Khel–Kazie (Khogyani) (already part of NH except 9 km) 9 3 Khogyani Kazia–Sultanpur (Surkh Rod) (already part of NH) 4 Khogyani Kazia–Agan (Panchir Wa Agam) 26 5 Panchir Wa Agam Agam–Chaprahar 8 6 Jalalabad Jalalabad–Basud 9 7 Kama Basud–Sangar Sarai (Kama) 23 8 Goshta Sangar Sarai–Goshta 19 9 Rodat Shahi Kot–Jalalabad road 9 10 Dih Bala Kotwal–Shahi Kot (Rodat) 25 11 Bati Kot Nadir Shah Kot–Jalalabad road 6 12 Shinwar Ghanikhe–Jalalabad road 6 13 Achin Sar Kala–Ghanikhe 16 14 Nazyan Nazyan–Ghanikhe 16 15 Lal Pur Lal Pur–Jalalabad road 7 16 Dur Baba Dur Baba–Jalalabad road 40 17 Khas Konar Shewa–Jalalabad (already part of NH) 18 Dar-i-Noor Panja Khel–Shewa 13 Total 237

Laghman Province 1 Qarghay Lal han Abad–Mihtarlam (already part of NH) 2 Mihtarlam Mihtarlam–Alingar (already part of NH) 3 Alishang Miharlam–Alishang 18 4 Dawlat Shah Alighang–Dawlat Shah 20 Total 38

Lowgar Province 1 Charkhi Qala-e-Amudin Road–Kabul Khost 16 2 Baraki Barak Qala-e-Amudin–Baraki Barak 20 3 Pol-e Alam Baraki Barak Road–Kabul–Pol-e Alam (already part of NH) 4 Khoshi Pol-e Alam–Khoshi (already part of NH) 5 Mahammud Agha Pol-e Alam–Kolangar–Mohammud Agha (already part of NH) 6 Lowgar–Ghazni Charagh–Zana Khan–Ghazni 40 (interprovince) 7 Lowgar–Paktya Pol-e Alam–Khoshi–Azra 42 (interprovince) Total 118

Kapisa Province 1 Kohistan Ezatkhel Sufia–Haji Khel (Koh Band) 17 2 Kohband Haji Khel road junction with Narjab–Mahmud Raqi at Dumama 12 3 Nijrab Nijrab–Tagab (already part of NH) 4 Tagab Tagab–Alasai 11 5 Kohistan–Mahmud Ezatkhel Sufia–Mahmud Raqi Raqi 6 Mahmud Raqi Nijrab–Mahmud Raqi (already part of NH) Total 88

Appendixes 47 Appendix 3A. Provincial Roads by Province and District (cont’d.)

S No. District Stretch Length (km)

Parvan Province 1 Shekh Ali Saqa–Salaf Zada (Surkh Parsa) 31 2 Surkh Parsa Salaf Zada–Siyagerd (Gorband) 30 3 Gorband Siyagerd–Qaq Shal (Shinwari) 20 4 Shinwari Qaq Shal–Charikar 23 5 Charikar Charikar–Bagram (a new asphalt road of about 57 km runs from 27 Kabul–Bagram and connects to Charikar) 6 Bagram Bagram–Mahamad Khel 21 7 Panjsher Esaqabad (Rokha)–Panjsher 40 8 Jabul Saraj Jabul Saraj–Salang (already part of RH) 9 Hisa-i-Awali Panjsher Rokha–Zenya 30 Total 222

Vardak Province 1 Jalrez Tajikha–Ashro–Madan Sharh — 2 Maidan Shahr Maidan Sharh–Khan e Ezat (Nirkh) 8 3 Sayeda Bad Nayeda Bad–Chak Warda 28 4 Chak Vardak Chak Vardak–Miran (Day Mirda) (4 km in common with Srl 3 above) 54 5 Hisa-i-Awali Bihsud Tajikan–Zar Kharid — 6 Markazi Kahud Zar Kharid–Bahsud Total 90

Kabul Province 1 Deh Sabz Trakhel–Kabul–Shakardara (30 km included in Kabul–Javul Saraj 6 and Kabul–Doshi roads) 2 Paghman–Kabul Kabul–Park e Jmhuriat 18 3 Mir Bacha Kot Mir Bacha Kot–Kalakan (already part of RH) 4 Kalakan Kalakan–Guldara (part of road included in RH) 10 5 Qara Bagh Kalakan–Qara Bagh (already part of RH) 6 Astalif Qara Bagh–Astalif 8 7 Bagram Kabul–Hussain Khel (Bagram) (already part of NH) 8 Chahar Asyad Qalai Naim–Hussain Khel (Bagrami) (meets NH Kabul–Pule Alam) 10 9 Khaki Jabar Khord Kabul–Hussain Khel (Bagrami) (meets NH) 16 10 Bagrami Hussain Khel–Sorobi (already part of NH) Total 68

Nurestan Province 1 Kamdesh Kamdesh–Barge-e-Matal 35 2 Waygal Kamdesh–Waygal 90 3 Nurestan Mangaraj–Nurestan–Mandol 70 4 Wama Wama–Dahate Pyar (Mandol) 120 Total 315

Jowzjan Province 1 Darzab Darzab–Sheberghan 99 2 Khwaja Du Koh Sheberghan–Khwaja Du Koh (already part of RH) 3 Mardyan Mardyan–Azcha 20 4 Aqcha Aqcha–Char Shingaw (Mingajik) 20 5 Khamyab Char Shingaw–Choghil Tapa (Khamyab) 75 6 Qarqin Choghil Tepa–Khan Tepa 30 7 Mardyan Mardyan–Feyzabad 32 Total 276

Paktia Province 1 Zurmat Zurmat–Gardez (already part of NH) 2 Shawak Gardez–Shawak 33 3 Jadran Shawak–Waza 10

48 Securing Afghanistan’s Future: Transport Sector Appendix 3A. Provincial Roads by Province and District (cont’d.)

S No. District Stretch Length (km)

Paktia Province cont’d. 4 Shamal Waza–Shamal 21 5 Sayyid Karam Gardeyz-Sayyid Karam (Paktia) (already part of NH) 6 Lija Mangal Sayyid Karam–Hasan Khel (Lija Mangal) 38 7 Chamkani Hasan Khel–Shar-e-Now (Chamkani) 24 8 Dand Wa Patan Shar-e-Now–Chaparai (Dand Wa Patan) 11 9 Jaji Hasan Khel–Ali Khel (Jaji) 18 10 Azra Ali Khel–Azra 70 Total 225 Helmand Province 1 Nad Ali Nad Alil–Lashkargah 40 2 Dishu Naqil-e Desho–Khanishin (Reg) (already part of NH) 3 Reg Khanishin–Garamser (already part of NH) 4 Barekzayi Garamser–Hazaraz (already part of NH) 5 Barekzayi Hazaraz–Ayanek — 6 Lashkar Gah (HP) Lashkar Gah–Gereshk (already part of NH) 7 Nahari Saraj Gereshk–Hawzad 75 8 Nahari Saraj Safian–Sangin–Kajaki (meets Kanadah–Girishk NH) 75 9 Musa Qla Musa Qala–Boghran Khola (Baghran) 80 10 Washer Washer–Nawzad 90 11 Washer Washer–Sangilan (at Sangilan this road meets NH) 30 Total 395 Balkh Province 1 Mazar-e-Sharif Mazar-e-Sharif–Dehdadi 15 2 Dehdadi Dehdadi–Baba Ewaz 45 3 Sholgara Baba Ewaz–Keshendeh 30 4 Chimtal Chimtal–Dehdadi 30 5 Charkint Mazar-e-Sharif–Charkint 40 6 Kaldar Kaldar–Haritan 40 7 Shortepa Haritan–Shortepa 85 8 Balkh Balkh–Dawlatabad 25 9 Chahar Bolak Road Junction at Baido-Chahar Bolak (meets RH) 25 10 Nahri Shahi Balkh–Nahri Shahi 37 Total 372 Paktika Province 1 Sharan Sharan–Mata Khan — 2 Mata Khan Mata Khan–Sultani (Sar Hawza) 34 3 Urgun Sultani–Urgun 30 4 Sarobi Urgun–Sarobi 20 5 Barmal Sarobi–Barmal 40 6 Gayan Urgun–Ster Gayan 50 7 Ziruk Urgun–Surai 32 8 Nika Surai–Nik 8 9 Gomal Qalai Shekh Nor–junction at Shatbara–Sultani (Sarhawza) — 10 Wor Mamay Wor Mamay–Waza Khwa 35 11 Zarghun Shahr Waza Khwa–Jani Khel–Zarghun Shahr 90 12 Sharan Zarghun Shahr–Yusof Qala–Sharan 40 13 Dila Khoshamand–Jani Khel (Zarghun Shahr) 22 14 Ghazni–Paktika Qara Bagh–Zarghun Shahr–Gomal 130 (interprovince) 15 Ghazni–Paktika Nawa–Waza Khwa 59 (interprovince) 16 Gomal Sarobi–Gomal 45 Total 635

Appendixes 49 Appendix 3A. Provincial Roads by Province and District (cont’d.)

S No. District Stretch Length (km) Oruzgan Province 1 Chora Chora–Tarin Kowt (already part of NH) 2 Nesh Tarin Kowt–Dinar Khel (Nesh) 33 3 Dihrawud Dinar Khel–Shar-e Now 30 4 Kijran Shar-e Now–Kijran 72 5 Shahidi Hassas Kijran–Nawmad 18 6 Gezab Nawmad–Gezab 90 7 Shahristan (Gezab) Ghawroch–Khesraw (45 km from Gezab–Ghawroch 25 part of NH) 8 Day Kundi Ghawroch–Khadir (already part of NH) 9 Khas Uruzgan Tarin Kowt–Oruzgan (Khas Oruzgan) 92 Total 360

Faryab Province 1 Qaysar Qaysar–Dewar Khana (Almar) (already part of RH) 2 Almar Dewar Khana–Maimana (already part of RH) 3 Kohistan Qala–Meymaneh 62 4 Bilchiraagh Sarchakan–Meymaneh 58 5 Shirin Tagab Meymaneh–Islam Qala (already part of RH) 6 Dawlat Abad Islam Qala–Qazi Boi Qala (already part of RH 7 Qaramqol Qazi Boi Qala–Qaramqol (already part of RH) 8 Andkhuoy Qaramqol–Andkhuoy (already part of RH) 9 Khan-e-Charbagh Andkhuoy–Khan-e-Charbagh 13 Total 133

Nimruz Province 1 Char Burjak Char Burjakkz–Zaranj 80 2 Kang Zaranj–Kard 19 3 Chakhansur Kard–Chakhansur 11 4 Khash Rod Chakhansur–Lokhi 9 5 Nimruz–Farah Chakhansur–Lash Wa Juwayn 81 (interprovince) Total 200

Sar-e Pol Province 1 Sozma Qala Sar-e Pol–Mulla Konda 28 2 Kohstanat Pasni–Sar-e Pol (already part of proposed North-South Highway 2) 3 Sang Charak Tukzar–Mola Kanda (Sozma Qala) 35 4 Sayyad Hazar Khami–Sar-e Pol 27 5 Balkhab Tarkzar–Tarkhol 55 Total 145

Samangan Province 1 Khuram Wa Sarbagh Aybak (Zababi)–Tana Chob 30 2 Ruyi Du Ab Ruyi Du Ab–Aybak (Zababi) 95 3 Dara-i-Suf Deh–Shabkhki 110 4 Dara-i-Suf Aybak–Deh 90 Total 325

Ghazni Province 1 Zana Khan Ghazni–Zana Khan 22 2 Dih Yak Ghazni–Ramak (Dih Yak) 21 3 Andar Ghazni–Mirf (Andar 28 4 Giro Mirf–Pana (Giro) 33 5 Jaghato Ghazni–Kalan Deh (Jaghato) 30 6 Bahrami Shahid Ghazni–Jaghato-e-Ghazni 28 7 Nawor Khwaja–Du Ab 80 8 Jaghori Qara Bagh–Sang-e Masha (Jaghori) 70

50 Securing Afghanistan’s Future: Transport Sector Appendix 3A. Provincial Roads by Province and District (cont’d.)

S No. District Stretch Length (km)

Ghazni Province cont’d. 9 Malistan San-e Masha–Malistan 53 10 Ajristan Malistan–Sangar 35 11 Nawa Mukur–Nawa 59 Total 459

Kandahar Province 1 Arghistan Khogiani (Arghistan)–Khogiani (Maruf) 75 2 Shorabak Spin Boldak–Shorawak 103 3 Arghistan Kandahar–Khogiani 80 4 Shah Wali Kot Kandahar–Sayyid Halim 24 5 Ghorak Baba Wali Sahib (Arghandab)–Ghorak 94 6 Mayand Ghorek–Kishki Nakhod 60 7 Daman Kandahar–Shaga 22 8 Panjwayi Kandahar–Panjwayi 15 9 Kandahar–Zabol Maruf (Kandahar)–Afghar (Zabul) 13 (interprovince) 10 Kandahar–Zabol Spin Boldak through Maruf District–Shamlzayi (Zabol) 180 (interprovince) 11 Kandahar–Helmand Argandab–Khakrez–Ghorak–Kajadi 61 Total 727

Zabol Province 1 Mizan Qalat–Mizan 43 2 Shinkai Shinkai–Qalat 70 3 Shamulzayi Shinkai–Shamalzayi 35 4 Atghar Shamalzayi–Atghar 40 5 Arghandab Shahjoi–Siygard 47 6 Day Chopan Siygard–Bailogh 44 Total 279

Badghis Province 1 Mukur Qal’eh-ye Naw–Deh-i-Babula (already part of RH) 2 Ab kamari Qal’eh-ye Naw–Ab-i-Baraki-i-Ghalmani–Daryakashan 45 3 Qadis Qal’eh-ye Haw–Qadis 37 4 Jawand Qadis–Char Taq 83 5 Murghab Gazestan–Bala Murghab 120 6 Gormach Balamurghab–Gormach (already part of RH) 7 Murghab Murghab Maurichaq 25 Total 310

Khowst Province 1 Gurbuz Khowst (Matun)–Shikh Amir (already part of NH) 2 Tani Shikh Amir–Tani 11 3 Mando-Zayi Dadwal–Tani 9 4 Nadir Shah Kot Kapari–Dadwal 13 5 Spera Kapari–Spera 23 6 Musa Khel Khowst (Matun)–Zur Kot 33 7 Qalandar Cenday–Khoswt-e Maila 10 8 Sabiri Khowst (Matun)–Zambar 30 9 Tere Zayi Khowst (Matun)–Alisher 25 10 Bak Alisher–Bak 14 11 Jaji Maydan Bak–Jaji Maydan Total 129

Farah Province 1 Lash Wa Juwayn Farah–Lash Wa Juwayn 85 2 Anar Dara Farah–Anar Dara 47

Appendixes 51 Appendix 3A. Provincial Roads by Province and District (cont’d.)

S No. District Stretch Length (km)

Farah Province cont’d. 3 Qalai Kah Anar Dara–Qalai Kah 50 4 Pusht Rod Anar Dara–Naw Deh (Khaki Safed) 50 5 Pusht Rod Farah–Bala Buluk 28 6 Bakwa Farah–Sultan-e Bakwa (already part of NH) 7 Golistan Sultan-e Bakwa–Qalai Kuhna (already part of NH) 8 Pur Chaman Qalai Kuhna (Ijan)–Pur Chaman (65 km part of NH) 40 Total 300 Sources: ADB estimates and Miinistry of Public Works.

Appendix 3B. Summary for Provincial Roads (km)

7-m carriageway 5.5-m carriage- with 1.5-m one- way with 1.0-m layer paved shoul- gravel shoulder Srl No. Province Roads der on each side on each side 1 Takhar 274 274 2 Badakhshan 727 155 572 3 Herat 601 80 521 4 Konduz 174 174 5 Baghlan 291 155 136 6 Ghowr 244 244 7 Bamian 24 24 8 Konar 195 39 156 9 Nangahar 237 237 10 Laghman 38 38 11 Lowgar 118 82 36 12 Kapisa 88 88 13 Parvan 222 222 14 Vardak 90 90 15 Kabul 68 68 16 Nurestan 315 315 17 Jawzjan 276 276 18 Paktia 225 225 19 Helmand 395 395 20 Balkh 372 372 21 Paktika 635 234 401 22 Oruzgan 360 360 23 Faryab 133 133 24 Nimruz 200 81 119 25 Sar-e Pol 145 145 26 Samangan 325 325 27 Ghazni 459 459 28 Kandahar 727 254 473 29 Zabol 279 279 30 Badghis 310 70 240 31 Khowst 129 129 32 Farah 300 300 Total 8,976 1,150 7,826

Sources: Ministry of Public Works and staff estimates.

52 Securing Afghanistan’s Future: Transport Sector Appendix 4. Current Commitments for Roads and Highways (1382–1383/2003–2004) Project Aid Committed Srl Length Provider Funds No. Stretch (km)(year) Status ($ million) Remarks

A. Super Corridor Segments—4 lanes dual carriageway highway; current commitment covers 2 lanes of 7-m carriageway and 2-m paved shoulders on either side, with central berge between; 2–12 m covering all stretches

1 Shirkhan Bandar–Pol-e Khomri 138 WB (1382) A 13.5 Contractor: Chinese Rly Corp. 2 Pol-e Khomri–Doshi 47 WB — 3 Doshi–Salang–Kabul 170 WB (1382) A 60 Wk 2 packages ongoing 4 Kabul–Ghazni–Kandahar 483 US/Japan (1382) A 207 Wk 5 packages ongoing 5 Kandahar–Spin Boldak 103.5 JFPR/Kuwait (1382) A 25 6 Haritan–Naibabad 57 ADB (1382) B 13 Consultancy awarded Nov. ‘03 7 Naibabad–Pol-e Khomri 164 ADB (1382) B 34.5 Consultancy awarded 8 Naibabad–Mazar-e-Sharif 26 ADB (1382) B 5.5 Consultancy awarded Nov. ‘03 9 Mazar-e-Sharif–Andkhuoy 197 ADB (1382) B 37 Consultancy awarded Nov. ‘03 10 Andkhuoy–Herat 550 ADB (1383) D 150 FS consultancy under finalization by ADB 11 Herat–Delaram 348 US, Japan, and C, D 50 Saudi—$50 million; Japan to Saudi Arabia (1382) decide. 12 Delaram–Zaranj 223 India (1382) C 70 13 Herat–Torghandi 119 Government — 14 Andkhuoy–Aqina 37 ADB B — 15 Herat–Islam Qila 124 Iran (1382) A 50 16 Kabul–Jalalabad 142 EU (1382) B 92 17 Jalalabad–Torkham 82 Pakistan B — Total Super Corridor 3,010.5 807.5

Project Aid Committed Srl Length Provider Funds No. Stretch (km) (year) Status ($ million) Remarks

B. National Highway Segments—2 lanes of 7-m carriageway and 2-m paved shoulders on each side Road Connections to Provincial Headquarters 1 Badakshan Province Feyzabad–Taloqan 120 WB (1382) B 16.4 SMEC—detailed engineering 2 Takhar Province Taloqan–Konduz 75 WB (1382) B 8.8 Contract: Chinese Rly Corp. 3 Bamian Province Charikar–Bamian 160 WB (1382) B 21.9 UNOPS—detailed engineering 4 Oruzgan Province Kandahar–Tarin Kowt 173 USAID (1383) C 19.03 5 Paktika Province Ghazni–Saran 56 USAID (1383) C 3.08 Saran–Zurmat 60 USAID (1383) C 3.3 6 Paktiya Province Ghazni–Zurmat–Gardeyz 86 USAID (1383) C 4.73 7 Khowst Province Kabul–Pol-e Alam 62 USAID (1383) C 3.41 Gardeyz–Pol-e Alam 60 USAID (1383) C 3.3

Roads Leading to Mines, Oil and Gas Locations 4 Maidan Shahr–Bamian 170 Italy (1382) B 42.6 Total National Highway 1,022 126.55

Appendixes 53 Appendix 4. Current Commitments for Roads and Highways (1382–1383/2003–2004) (cont’d.)

Project Aid Committed Srl Length Provider Funds No. Stretch (km) (year) Status ($ million) Remarks

C. Provincial Roads—Provincial roads have two sets of specifications. In more important locations, it includes 2 lines of 7-meter carriageway and 1.5-m, one-layer paved shoulders on each side. In other segments, it is 5.5-m carriageway and 1-m gravel shoulders on each side.

1 Nangarhar Province Basid–Sangar Sarai (Kama) 23 USAID (1383) C 2.07 Sangar Sarai–Goshta 19 USAID (1383) C 1.71 2 Nuristan Province Kamdesh–Waygal 90 USAID (1383) C 8.1 3 Pakktika Province Mata Khan–Sultani (Sar Hawza) 34 USAID (1383) C 3.06 Sultani–Urgun 30 USAID (1383) C 2.7 Urgun–Sarobi 20 USAID (1383) C 1.8 Sarobi–Barmal 40 USAID (1383) C 3.6 4 Zabul Province Shinkai–Qalat 70 USAID C 6.3 Total Provincial Roads 326 29.34

Total All Roads 4,358.5 963.39

Notes: ADB = Asian Development Bank, EU = European Union; JFPR = Japan Fund for Poverty Reduction; UNOPS = United Nations Office of Project Services; USAID = United States Agency for International Development; WB = World Bank. Status: A = under construction; B = consultants appointed/design and survey; C = preliminaries in progress; D = committed. Sources: ADB estimates, Ministry of Public Works, and donor sources.

54 Securing Afghanistan’s Future: Transport Sector Remarks TA is provided by ADB. Funds is provided by TA are already approved. Fund when MCAT release will start ADB. training plan to submits to Budget Needs to be shifted for 2004/1383. Some airports ADB 2004 will be covered by loan for civil aviation. ISAF may be looking to by provide some assistance next year for upgrading the of the airport. capacity K-DFID = United Kingdom Department of K-DFID = United Kingdom Department Status In 2002 DFID spent $0.13 million on improvement of terminal. Buses are being procure and will be given to Afghanistan by end of 2003 . Completed. All required equipment has reached Kabul. Required funds have been provided from overflight charge income. have been made with Indian Contacts will training centers; a delegation from MCAT soon go to India arrange training programs at air operation areas. staff for some MCAT Nothing has been done due to lack of funds, donors. Nothing has been done due to lack of funds, donors. has pledged to The Government of Japan build another terminal. the project is ongoing. has started; Work 1383 0.65 0 14.3 3 1382 1381 18.13 20.25 12.5 Budget ($ million) Donor Proposed Projects for 1381–1383/2002–2004 Kabul ADB 0 0.5 KabulKabul 0 0.5 2 8.5 Kabul JapanKabulKabul India 0 unknown 0 7 0.2 0 0 0 Project Location Project Ministry of Civil Aviation and Tourism. and Aviation Ministry of Civil ADB = Asian Development Bank; ISAF = International Security Assistance Force; MCAT = Ministry of Civil Aviation and Tourism; U Tourism; and Aviation = Ministry of Civil Force; MCAT Assistance Asian Development Bank; ISAF = International Security ADB = Airport Subtotals by year TotalGrand $50.88 million System 15 domestic airports Kabul airports 1 of Kabul Rehabilitation Kabul UK-DFID 0.13 6 Equipment, training7 Priority rehabilitation of8 Kabul Airport Extension 9 Priority rehabilitation of 0 9 1.1 3 1 5 Training 2 Four buses for airport 3 Ariana three Airbuses 4 Rehabililtatioin of Visat Appendix 5. Update on National Development Budget: Ministry of Civil Aviation and Tourism Aviation on National Development Budget: Ministry of Civil Appendix 5. Update No. Notes: International Development. Source:

Appendixes 55 Remarks Status implemented due to lack of donor and fund. procurement is nearly finalized, and the buses will arrive in early 2004. delivered; the balance will arrive in 2004. implemented due to lack of donor and fund. implemented due to lack of donor and fund. implemented due to lack of donor and fund. 1383 1382 Proposed Budget ($ million) Projects for 1381–1383/2002–2004 Projects 1381 Req. Comm. Disb. Req. Comm. Disb. Spent Req. Comm. Disb. Spent Spent Donor Project Appendix 6. Update on National Development Budget: Ministry of Transport Proposed on National Development Budget: Ministry of Transport Appendix 6. Update : Ministry of Transport. : Ministry of : The Government has approved procurement of 100 buses for Kabul at a total cost of $7.5 million in 1383/2004. The Government has approved procurement of 100 buses for Kabul at a total : female driver training Subtotals by yearSubtotals 9.6 11.05 16.4 Bus Service (Millie Company) port terminals, Kabul Buses, Kabul (electrical buses) Note Source 1 Rehabilitation of National2 buses Provision of 111 Japan 0.53 Provision of 400 buses India 04 Gender sensitivity, unknown 9.65 0.56 Construction of trans- unknown 6.06 of Trolley Rehabilitation unknown 4.4 12.0 0.05 The project has not been 0.3 4.4 The project is in process, 0.3 date 274 have been To The project has not been The project has not been The project has not been Grand Total $37.05 No.

56 Securing Afghanistan’s Future: Transport Sector Appendix 7. Construction Equipment Availability at the Ministry of Public Works

Equipment Kabul Kandahar Herat Parvan Nangarhar Baghlan Jowzjan Total

Trucks 3 2 5 2 2 2 1 17 Operable 3 2 3 0 2 1 1 12 (71%) Dumpers 15 15 22 12 13 6 4 87 Operable 5 8 15 4 9 4 3 48 (55%) Water Tankers 0 4 0 2 2 3 1 12 Operable 0 2 0 0 2 1 1 6 (50%) Bitumen Tank 0 0 1 0 1 1 0 3 Operable 0 0 1 0 1 0 0 2 (67%) Buses 1 0 2 0 0 1 0 4 Operable 1 0 1 0 0 1 0 3 (75%) Cars 4 1 4 2 0 0 0 11 Operable 4 1 4 1 0 0 0 10 (91%) Bulldozers 3 0 6 6 2 4 2 23 Operable 2 0 4 3 0 2 1 12 (52%) Loaders 4 2 4 3 1 1 1 16 Operable 2 2 2 2 1 1 0 10 (63%) Graders 3 3 3 2 2 1 2 16 Operable 2 2 2 0 1 0 1 8 (50%) Excavators 2 0 0 3 1 1 1 8 Operable 1 0 0 2 1 0 0 4 (50%) Cranes 2 1 2 2 1 1 0 9 Operable 2 0 1 0 0 0 0 3 (33%) Rollers 5 0 4 2 2 1 1 15 Operable 2 0 3 1 1 1 0 8 (53%) Asphalt Mixers 4 0 1 0 6 0 0 11 Operable 2 0 1 0 2 0 0 5 (45%) Asphalt Plant 2 1 1 1 1 0 0 6 Operable 2 0 1 0 1 0 0 4 (67%) Air Compressor 1 2 2 2 0 0 1 8 Operable 0 1 2 0 0 0 1 4 (50%) Welders 2 0 2 1 0 2 0 7 Operable 1 0 1 0 0 1 0 3 (43%) Generators 0 0 0 1 0 0 0 1 Operable 0 0 0 0 0 0 0 0 (0%) Snowplows 0 0 0 2 0 0 0 2 Operable 0 0 0 1 0 0 0 1 (50%) Total51315943342414256 Operable 29 18 41 14 21 12 8 143 Percent 57 58 69 33 62 50 57 56%

Source: Ministry of Public Works.

Appendixes 57 Appendix 8. Transitional Islamic Government of Afghanistan: Policy Statement for the Transport Sector1

tion of transport services is often in the hands of the public Background and Purpose sector, and ministries are therefore not only engaged in determining policy but also, and more so, in operations and he transport sector is one of the keys to the future regulation. development and well-being of Afghanistan. The The current arrangements do not promote efficiency T country’s mountainous features give rise to high and often also make it difficult to effectively address mat- transport costs, leave many communities profoundly iso- ters of public interest. The evidence may be seen all over lated, and pose a challenge to nation-building. Being land- the country: roads are not being maintained, transport ser- locked adds to Afghanistan’s vulnerability. An efficient vices are of poor quality, the aviation safety system does not transport sector will not only reduce costs in comparison meet international standards, and road traffic safety is poor with the current situation; it is a precondition for strength- by any standards. This position is not only a result of the ening the unity of the country, and promoting cohesion and past conflicts and lack of funds; they also derive from the Afghan identity. inadequate policies and institutional arrangements. With this Policy Statement, the Transitional Islamic The purposes of this Statement are Government of Afghanistan (TIGA) wishes to chart a •to formulate a long-term vision (10–15 years) for the course for the development of the Afghan transport sector overall development of the transport sector (whose based on explicit policy formulations. The Statement rep- realization assumes peaceful conditions prevailing in resents the first policy document for the transport sector the country); and since the Bonn Agreement in December 2001, and supple- • to provide a framework for the identification of key ments the National Development Framework. It is viewed actions required in the first phase for transforming the as an interim policy, as the current administration is transi- transport sector, encompassing the period up to the tional; it is expected to be restated once the new adminis- end of year 2008/1387. tration under the new constitution has come into power. This Statement will serve as a guideline for the work Relevant provisions of the new constitution will be reflected of ITGA and its successor; it is also expected that donors in the restated Policy Statement for the Transport Sector. active in the transport sector will take it as a guide to The restated Statement will also incorporate relevant rec- ensure that their support achieves maximum development ommendations from the Civil Service and Privatization impact, and ultimately the successful reconstruction of Commissions, accepted by the Government. These Com- Afghanistan. missions were still working on their recommendations at The focus of this Statement is on the role and struc- the time this Statement was prepared. ture of government, the role of the private sector, and the The need for this Policy Statement emanates from the approach for addressing public interest issues in the trans- condition that current legislation and institutional arrange- port sector. ments in the public sector have, to a large extent, been All modes of transport are covered. shaped during the period of occupation when foreign powers exerted heavy influence on policy matters in Afghani- Basic Policy Objectives stan. The transport sector is hence characterized by heavy reliance on public ownership, centralization, and archaic The basic policy objectives of the Government are to organizational arrangements in the public sector. Produc- • promote economic growth; • eradicate acute poverty; and 1 Adapted from Afghan Assistance Coordination Authority, Ministry of • strengthen national unity. Transport, Ministry of Public Works, and Ministry of Civil Aviation and Tourism, Transport Sector Review , Draft Final Report, October 2003.

58 Securing Afghanistan’s Future: Transport Sector To attain these objectives, resource utilization in the • The importance of establishing self-financing mecha- transport sector must be radically improved. This will have nisms for the preservation, and also provision, of to be achieved while adequately addressing public interest infrastructure facilities. issues such as • The need to engage contractors by competitive ten- • The provision of safe and secure transport services; dering procedures for the provision and preservation • The protection of the environment; of infrastructure facilities. • The promotion of gender equality, attention to women’s This notwithstanding, the Government recognizes that needs in transport and the participation of women in a market-based approach in the transport sector combined the sector; with autonomous management and self-financing of infra- • The improvement in accessibility to rural and urban structure facilities, while necessary, is not sufficient to areas; and ensure a well-functioning transport sector. There are a num- • The promotion of competition. ber of public interest issues to be addressed as well, and these require regulation, which is a domain of the public sector. Means to Attain the The nature of the regulation required varies. Thus, some issues are not simply a concern of the transport sec- Objectives tor, but cut across all sectors of the economy. For example, The main functions in the transport sector can be iden- certain aspects of environmental control relate to activities tified as follows: in other sectors as well. And the promotion of competition • The supply of transport services, including interme- is a regulatory activity that applies throughout the economy; diate services such as freight forwarding, clearing, and it is therefore not considered further here. other agency services; Other issues are exclusive concerns of the transport • The provision and preservation of infrastructure; sector, such as safety, security, and the dimensions and • The performance of regulatory activities to address environmental features of vehicles and aircraft. Regulatory public interest issues; and activities in these areas essentially comprise the setting and • The performance of policymaking and overall moni- enforcement of—or the provision of incentives to abide by toring of sector development. —standards. Regulation is primarily directed towards in- The Government’s view is that allowing competition dividuals or companies. and private sector participation will best attain efficiency With regard to accessibility and gender, regulation may in the provision of transport services. Transport services include standard setting and enforcement, but the issues at are, in general, best produced subject to the minimum of hand may require a more proactive role by the public sec- economic regulation with regard to entry, capacity, and pric- tor. Accessibility is related to the provision of transport and ing. infrastructure services at affordable prices to certain com- The public sector has a much more central role in the munities that would be inadequately served by a purely provision of infrastructure on account of characteristics that market-based approach. These communities, in addition, cannot easily be handled by private interests, including high often tend to be poor and to live in very remote areas of the risks, network effects, and other external effects. However, country or in inaccessible parts of urban areas. the Government is cognizant of international experience in The Government’s role with regard to accessibility is arrangements for the planning, provision, and operation of threefold: infrastructure that may significantly contribute to efficiency. • To formulate policies and establish standards with These include regard to accessibility; • The need for delegation of management to autonomous • To identify and establish an institutional framework organizations within a governance framework provid- that can effectively identify and put in place the means ing for effective enforcement of accountability. to implement policies and improve and achieve stan- •· The importance of ensuring involvement ofthe users dards of accessibility; and of infrastructure in the governance of the organiza- • To provide finance to ensure improved accessibility. tions charged with its management. This may also en- Regulatory activities with regard to gender normally tail decentralization of the management of infrastruc- cut across all sectors in the economy; for example, mea- ture. sures to promote women’s careers in the public service. But there are also some transport sector dimensions to be noted:

Appendixes 59 • Specific enforcement issues apply to the use by women ban areas are met. Such public service obligations will be of taxis, buses, and other means of transport, to ensure procured by competitive tendering. equal treatment of both sexes. • There is need to identify and develop transport solu- Roads tions that are responsive to the needs of women. An implication of this is that the organizations charged The national road network will have been rehabilitated with the management of infrastructure and the provi- and, where required, upgraded. It will be managed by an sion of solutions for meeting accessibility standards autonomous road agency, and its preservation and further must also review needs from a gender perspective. This development financed by road user charges, which are not may be achieved by ensuring women’s representation part of the consolidated budget. Provincial and/or local on boards in agencies and/or incorporating appropri- road authorities will manage provincial and local roads, and ate instructions in planning and design manuals. a substantial part of their costs will also be financed by road Since much regulation is of an operational nature, user charges. A road fund will have been established to efficiency in performing regulatory functions can often be collect road user charges and to serve as procurer of road achieved by delegation to autonomous organizations, agen- services from the road agency and local roads authorities, cies that perform their business within a transparent gov- and hence to serve as regulator of the road sector. Donor ernance framework. This applies, e.g., to the performance assistance will be directed toward the development of rural of regulatory functions to promote safety and security in roads required to improve accessibility. Contractors, includ- transport and infrastructure operations, as well as to ing those under long-term contracts for maintenance, will improve the environment. It is desirable that such organi- carry out most works. A substantial amount of work will zations are largely self-financing. It is the Government’s wish be contracted out to small contractors using labor-based to promote the development of agencies of this nature. techniques. Policy formulation, international relations, drafting of legislation, and sector monitoring are obvious functions for the public sector, and indeed the main functions to be per- Airports and the Air Navigation formed by a ministry in the transport sector. System

The airports of the country will be managed by a num- Long-Term Vision for the ber of airport companies. It is expected that these, with the Transport Sector exception of the airport in Kabul, will essentially have provincial ownership. The airports will be self-financing for In terms of the overall objectives and the means iden- their operations (but not necessarily for their development). tified to attain these objectives, and based on international The air navigation system (ANS) will be operated by a experience, the Government has formulated the following separate corporate self-financing entity. Legislation estab- vision for the transport sector: lishing the airports and ANS corporations will enable the facilities and services to be privately financed and oper- Transport services ated in terms of a concession. A system for economic regulation, comprising mainly self-regulatory arrangements, Private operators, subject to competition, will perform with regard to the airports and ANS will have been estab- transport operations. This will apply to the provision of lished. taxi, road haulage and bus transport, all intermediate services and air transport services. Subject to international Safety agreements, competition is also expected to rule on international routes, including with respect to air transport, bus A new agency for the regulation of safety, security, and transport, and road haulage. environmental protection in aviation will have been estab- Transport operations will normally be provided with- lished. Similarly, the regulation of road traffic with regard out public subsidy. However, certain domestic services may to safety and environmental aspects specific to the road sec- be provided under public service obligations, to ensure that tor will have been entrusted to another agency, also expected minimum standards of accessibility in the country or ur- to handle registration of licences and vehicles. Both as con-

60 Securing Afghanistan’s Future: Transport Sector cerns aviation and road traffic, Afghanistan will regulate tor accordingly, but to ensure the well-being of its citizens safety and security adequately in terms of internationally attempts must be made. In the short run, it is important to accepted standards. embark on a process of change that will eventually lead toward the realization of the vision. Railways and rivers In the short term, the Government has decided to take the following considerations into account: Investments in river transport facilities and railways •Privatization of the national carrier, Ariana, is not pos- will be encouraged. River and railway transport develop- sible in the near future, as it is loss-making. Similarly, ments will essentially be a responsibility of the private sec- in the near future, it will not be possible to privatize tor. The Government may participate in such developments MOT road haulage and bus transport operations, as provided that demonstrated economic benefits may be the country has received and is receiving a substantial derived therefrom that cannot be captured by private number of donated vehicles. These operations should, investors, or to improve accessibility to remote regions in a however, be commercialized, as a first step toward later cost-effective manner. privatization. • In international air transport operations, Ariana will need to be offered protection for a period of time. There Organization of Government are two reasons, viz. the need to ensure international in Transport connectivity given that the aviation safety and security system in Afghanistan has not been ICAO-certified, A new ministry will have been established, to replace and the potential competition for Afghan routes from the current three ministries in the transport sector, i.e., other regssional airlines. Ariana is, however, expected Ministry of Transport (MOT), Ministry of Civil Aviation to be profitable and to serve only routes not expected and Tourism (MCAT), and the Ministry of PublicWorks to be loss-making in the medium term. Also, the small (MPW), and will be charged with policy work for the road domestic market, in part on account of the inadequate sector, road transport, multimodal transport, air transport, facilities at present, does not lend itself to open com- and new modes, such as rail and river transport. This new petition for the time being, but may provide scope for ministry will ultimately also be responsible for road traffic a regulated system designed to encourage the partici- (except enforcement), an area that today falls under the pation of the private sector. However, air cargo may Ministry of Interior (MOI), as well as policy matters be liberalized. related to rural roads, which are today handled by the Min- • The country at present does not have an established istry of Rural Rehabilitation and Development (MRRD). corps of contractors. While construction works and The new ministry will additionally have become respon- large maintenance contracts may be handled by inter- sible for international relations and for preparing the pub- national contractors, local contractors can for some time lic budget in the sector. The ministry will have a staff of only be expected to handle part of the maintenance about 200 persons. works. MPW will need to maintain limited force ac- To ensure accountability of the new agencies and cor- count capacity for the time being to perform (routine) porations, an explicit governance regime will have been put road maintenance, and also to undertake emergency in place. The governance regime will encompass objectives repairs to supplement the capacity of the private sec- for these organizations that may be measured, the publica- tor. tion of periodic and annual reports to shed light on the • The current administrative weakness of the provinces attainment of the objectives, and arrangements to allow for implies that decentralized arrangements for airport and the involvement of users and other stakeholders. The new road sector management will have to be delayed for ministry in the transport sector will normally perform the some time. day-to-day monitoring of these organizations. • Fundamental restructuring of the ministries is not possible at present. However, partial restructuring under the Decree on Priority Reform and Restructuring Short-Term Considerations (PRR) within Ministries may be effected. This De- cree allows for departments of ministries to be given Thevision formulated above is ambitious; it will be a PRR status, so that individuals appointed to key posts challenge to Afghanistan to restructure the transport sec- in these departments may be offered better conditions

Appendixes 61 on a time-limited basis and subject to performance. • The CBD will design new departments correspond- In addition, in the near future, the functions related to ing to the future needs of the ministry. Once such a vehicle registration and drivers’ licensing should be department has been designed, and key staff members transferred from MOI to MOT; those relating to air- identified, an application for PRR status will be made, port airside infrastructure should be transferred from and the department will then be launched. MPWs to MCAT, and those relating to rural roads • New structures, including the envisaged future air- from the MRRD to MPW. ports corporations, ANS, and agencies in aviation, roads, and road traffic, will initially also be established as a new department, which will be given PRR status. Short-Term Actions Once this department has been set up, and basic re- Based on the above considerations, a number of short- cruitment completed, the next step will be prepared term actions —to initiate reform of the transport sector— by the CBD, leading to the launching of the agency or have been proposed by the Transport Sector Review for corporation, and subsequent closure of the former de- implementation during the period up to the end of 2008/ partment in question. 1387; see the Action Plan of the Transport Sector Review . • The CBD will serve as the gender focal point to the Gender Advisory Group, and will be expected to implement a gender operational policy. Capacity Building Capacity-building units can be established in the form of a department within the three transport ministries by The Policy Statement places emphasis on the private the end of 2003/1382. sector in rebuilding and developing the transport sector. The Government’s view is that capacity building is a key both to trigger this development and to ensure a balanced The Role of Donors approach with adequate attention paid to the public interest issues in building the capacity of the public sector. The The Government expects donors to play a key role in challenge is formidable in view of the shortage of skills and supporting the reform of the transport sector both in the the fact that the ministries until recently were steeped in a short and long run as set out in this Policy Statement. culture inappropriate to future needs. To move forward, Donors are encouraged to make reference to this Policy the existing ministries will have to be used as a platform to Statement when designing and proposing support activi- implement change and reform. ties to the Government. Donors are further encouraged to As part of capacity (including institution) building, the coordinate their efforts within the framework of the Con- Government envisages the following steps: sultative Group of Transport. It is anticipated that this • Each ministry will set up a new department to be Group will provide a forum for debate on support to the charged with capacity building (CBD). 2 The CBD is sector, but also serve as a platform for streamlining donors’ to be given PRR status in terms of the Decree on PRR approach to the planning of support, as well as procedures within ministries. The head of the CBD will report to for procurement. the deputy minister or the minister. Donors are particularly encouraged to lend their short- • Each CBD will be provided with a technical assistance term support to the envisaged capacity-building units in team comprising experts in development of the man- the three ministries, as proposed in this Statement. In the agement and administration of a ministry, experts in medium term, donors can fruitfully assist with the estab- the specific functions of the ministry concerned, and lishment of new corporations and agencies, including the experts in training in the skills to be acquired by the required governance framework, and the building of ministry concerned. The team leader will report to the capacity to handle procurement and contract supervision, head of the CBD, and on an interim basis to the min- including labor-based works. In the longer term, a main ister/deputy minister. concern of donors could be to assist with improving accessibility.

2 The CBD is referred to as the Reform and Restructuring Office in other documents of the Transport Sector Review .

62 Securing Afghanistan’s Future: Transport Sector Appendix 9. Financing the Road Sector1

Purpose Background and

his paper reviews road financing issues, and makes Assumptions proposals for a policy on road financing in the short T term. It also outlines a policy for the medium term. Most countries finance the construction and maintenance of public roads by way of appropriations from the government’s central revenue fund. Road users pay vari- Current Situation in ous taxes on vehicles, fuel, vehicle usage (generally in the form of weight-distance taxes, but also as tolls), and on Afghanistan spare parts for vehicles. While these taxes are specific (and separate from ordinary taxes on income, capital, and con- The current situation in Afghanistan is that road users sumption), they are normally not earmarked. They gener- pay no specific taxes on vehicles, fuel, or spare parts. ate income for the central revenue fund of the government. Until recently and in theory, Afghanistan had a self-financ- The policy of imposing taxes on fuel and vehicles used ing system for roads. The pedigree was a toll system imple- by road users are based on the following premises: mented in 1974, 2 which generated funds for the central • They ensure an efficient use of roads; revenue fund, but did not contain any elements of earmark- • Since they generate revenues for the central revenue ing. The tolls were collected by way of a system of toll sta- fund, the Government may allocate the revenues for tions scattered throughout the country. From 1999, a new expenditures in a rational way; and system was implemented by way of a new regulation re- • The deposit of the revenues into a single central rev- placing the previous one. 3 The new system continued the enue fund promotes proper cash management. previous toll collection system, but also introduced earmark- The second and third arguments have traditionally ing. The toll revenues were to be spent on construction, been used to oppose the earmarking for the road sector of reconstruction and maintenance of paved highways as well the revenues from taxes on road users. However, there are as the maintenance of other paved roads. Toll collection nowadays many examples to be found around the world of was organised by the Ministry of Public Works (MPW) how road users pay charges, which generate revenues, which and tolls were viewed as a source of revenue for it. Through are not for the benefit of the central revenue fund, but are a decision by the High Council of Ministers on 23 Sep- used directly to finance road works. There are numerous tember 2002, this road toll system was abolished. 4 different variants. Additionally, mention should be made that separate There are mainly two reasons for this development. charges are imposed on trucks at present, which are col- First, some countries have decided to introduce a self- lected at “toll” stations. The charge is per ton of the pay- financing system for their roads. In these countries, the road load of trucks as a proxy for the value of the transport con- sector is viewed essentially as a public utility, and a new tract. This charge, which is still being collected, benefits system of governance and control has been introduced simi- the Ministry of Transport, and not the road sector. lar to that of a utility.5 Second, in many—often developing —countries, the governments have failed to allocate 1 Adapted from Afghan Assistance Coordination Authority, Ministry of adequate amounts of funds for road maintenance through Transport, Ministry of Public Works and Ministry of Civil Aviation and the ordinary budget process resulting in a deterioration of Tourism, Transport Sector Review , Draft Final Report, October 2003. 2 Toll Fees for Motor Vehicles , Official Bulletin, No. (238), dated 7 the road network. To halt this development, the main fin- October 1974. anciers of road investments, the international financing 3 Regulations for Collecting Toll Fees, Official Bulletin, No. (786), dated 13 July, 1999. institutions, have started to promote various schemes for 4 Decree General No. 43 of September 23, 2002, Special No. 13, (1381 H.Q). 5 The two prime examples are New Zealand and Namibia.

Appendixes 63 ensuring that adequate amounts of funds are being allocated for road maintenance. These schemes typically Options involve the introduction of road user charges (i.e., earmarked charges on road users), which are collected and The available options involving road user charges are, allocated by way of an agency of the state, generally re- in principle, the following. ferred to as a road fund. The sponsors of these arrangements normally assist with the introduction and enforce- 1. Conventional Road User Charges ment of a new system of governance and control to ensure that there is proper use of funds and cash management. These are surcharges on fuel, annual charges on While Afghanistan at present imposes no taxes on road vehicles, and sometimes other charges related to vehicle users, it is assumed that the Government will do so as soon usage. Note that these charges are not taxes, as the rev- as possible, and that the structure and levels of the taxes on enues are channelled back to the road sector, as discussed fuel and vehicles will conform to internationally established further below. Conventional charges are to be found in quite norms. The revenues generated by these taxes will be for a number of countries, but only one country, New Zealand, the benefit of the central revenue fund, and will be used to has implemented a full-fledged system based on conven- finance government expenditure, including expenditure on tional charges. roads. The introduction of such taxes will, however, take some time for reasons explained below. 2. General Tolls In the meantime, the Government will have to address the problem of how to ensure adequate funding for road These are toll systems similar to the one in place in maintenance in the near term. 6 A number of projects for Afghanistan until September 2002. Such systems are found road rehabilitation will be completed soon, and maintenance in very few countries. 8 will have to be initiated immediately thereafter. This paper examines whether road user charges could be an instrument for solving this problem, and thus identifies and 3. Private Sector Financing reviews various options for financing the public road network by way of such charges. A concession is awarded to a separate legal entity to The options considered include only charges on users build and/or operate a road for a period of time. Normally, of roads. In some countries, charges are imposed on those the entity’s costs are recovered by tolls which it collects who indirectly benefit from a road, e.g., industry or land- directly. This approach is common in Europe, the US, and owners along a road. Systems based on charging industry East Asia for roads with high levels of traffic, as well as for are being phased out (e.g., in the Russian Federation) as expensive infrastructure such as bridges and tunnels. they are seen as not promoting economic efficiency and often inadequately satisfy the “benefit principle,” i.e. that 4. Road Tolls on Specific those who benefit should pay (see further below). The with- drawal (of part) of the economic rent generated by roads in Beneficiaries of Road Works the form of increased land values is difficult, and normally yields only small sums of money. 7 Under this system, for example, tolls are collected only on bridges, on new roads, or on rehabilitated/upgraded roads, i.e. on those parts of the network where the road user can see a clear benefit from the road works. Note that these tolls are collected for the benefit of the Government and roads in general, and are not necessarily used to defray

6 The driving force behind the need to review road user charges is the very the expenses of the road works concerned. This system is high cost burden that Afghanistan will be facing once the roads, under to be found in e.g. Pakistan. present reconstruction programs, begin to require maintenance. In the near future, these costs will amount to $10 million per year, later rising to over $100 million per year. See further the Background Documen t, Section 5.5, and the Annex to the Overview Paper for Roads . 7 One variant of this approach is the road association to be found in 8 One example is Lao PDR. Tolls collected at toll stations on the main Scandinavian countries. Local roads are run and financed by the owners highways of the country are earmarked for road maintenance. of the properties served by the roads.

64 Securing Afghanistan’s Future: Transport Sector 5. Road Tolls for Financing Specific an account separate from the ordinary government account is required. This account is sometimes referred Contracts for Road Works to as a special deposit account. 10 •For all options, a regulatory regime is required for set- Under this system, toll revenues are used, for example, ting the level of the road user charges (including tolls to finance contracts for maintaining and operating specific and conventional charges). parts of the road network. In Afghanistan, such tolls could be imposed on roads that have been reconstructed and upgraded, and where the road users could identify the ben- What Should Road User efits of the improvement as well as the maintenance required to sustain that improvement. Charges Recover? There are two variants. In one variant, the toll revenues from different roads are pooled and used to finance a The basic principle of regulatory regimes for road user number of similar maintenance contracts. In the other, the charges is that these are to be set to recover identified costs toll revenues collected on a specific road are used exclu- (seen in a longer perspective), as well as ensuring a reason- sively to finance the contract for that particular road. This able return on invested money in the case of private sector second option is very close to Option 3. The main differ- financing (Option 3). The following are the alternatives to ence is that, for Option 3, the private entity is (normally) be found in different countries: expected to bear the traffic risk. In option 5, the state is the • Routine maintenance (including operations, i.e. snow risk taker. removal, etc.); The following should be noted: • Routine and periodic maintenance 11; • To implement any of these schemes, legislation will be • All maintenance and capital costs for construction and/ required to enable the Government to impose the or reconstruction, i.e. “full” cost recovery. charges or tolls or to empower a private entity to col- To determine what is feasible in Afghanistan, indica- lect tolls. tive data will be used with reference to the national road • The realization of any of these options would generate network of the country. additional funds for financing the road sector, in par- • The average daily traffic on these roads varies between ticular, and the public sector, in general. The incidence 300 vehicles and about 3,000 vehicles. Roughly speaking of these options would be on road users and/or on those 70% are cars, 8% are buses, and 22% are mini buses. who benefit indirectly from road use. • The average cost of routine maintenance per kilome- • With the exception of Option 3 (the private/conces- ter per year is estimated at between $2,700 (at 300 ve- sion option), a mechanism is required for channeling hicles/day) and $5,000 (at 3,000 vehicles/day). The revenues back to the road sector, bypassing the ordi- average cost of routine and periodic maintenance per nary appropriation process of the Government. The kilometer per year can be estimated at between $4,500 mechanism should comprise a governance system to (at 300 vehicles/day) and $14,000 (at 3,000 vehicles/ ensure that the funds are allocated appropriately and a day), and the average cost of the sum of maintenance control mechanism to ensure that the moneys are not and reconstruction cost per kilometer per year can be misused. There are several alternatives. One is simi- estimated, in vary rough terms, at as a minimum lar to the mechanism used until recently in Afghani- $20,000. stan. The money goes to the road authority, which may • Based on the toll rates that were applicable in Afghani- spend it according to a plan/budget approved by par- stan until 2002, a traffic flow of 300 vehicles per day liament/cabinet. Another alternative is to vest the power would generate about $800 per kilomter per year, and to allocate the funds in a separate entity, i.e. in a road a flow of 3,000 vehicles about $8,000 per kilometer fund. There are numerous examples of road funds per year. Conventional wisdom indicates that around the world, e.g. in Africa, Latin America and Asia (although it should be noted that in reality most the road user charges generating funds for the road fund, subject to the legal requirements. In New Zealand, the Cabinet must approve any road funds actually have limited powers as to what changes in the road user charges. decisions they can make 9). For all options (except 3), 10 Many road funds do not operate in terms of a separate account, but rely on transfers from the central government account. 9 The two main exceptions are the Namibian Road Fund Administration 11 Periodic maintenance mainly refers to new overlays, which are periodic (NRFA) and TransFund New Zealand. NRFA can also set the level of cost and required after a period of between 6 and 10 years.

Appendixes 65 affordable road user charges in a developing country that it is primarily based on charges on fuel and vehicles. are on average about 1 US cent per kilometer, 12 which Charges on fuel cannot be considered until taxes on is approximately 35% above the level applied in vehicle fuel are being or have been imposed. The efficient Afghanistan last year. Assuming that an affordable road administration of such a system typically is based on an user charge for Afghanistan would also be about 1 US arrangement whereby the taxes, and therefore also the fuel cent per kilometer, then it can be estimated that a flow charges, are collected by oil distributing companies. of 300 vehicles would generate a maximum $1,100 per Charges on vehicles require an effective vehicle register, kilomter per year and a flow of 3,000 would generate a which does not exist at present. maximum $11,000 per kilometer per year. Since risks are considerable in Afghanistan at present, These indicative numbers suggest that, for the near the private sector option is not deemed to be feasible. Such future, it will be possible to recover only maintenance (includ- solutions will entail high tolls to recover the risk premium. ing operations) costs via road user charges in Afghanistan. It is The feasible options are hence the ones in which the state possible that road user charges in the medium term may be bears the traffic risks. used to recover both routine and periodic maintenance costs. The remaining options, 2, 4, and 5, are, on the other Full cost recovery by way of road user charges is not an option hand, deemed feasible in the short term. 13 These involve for Afghanistan for many years to come (with the exception of road tolls generating revenues for the Government to be limited road sections with high traffic intensity). used in the road sector. Criteria for Assessment Criterion (b) The introduction of any of the three tolling options The following criteria have been used to assess the op- would improve economic efficiency. Since no taxes or tions: charges are imposed at present, and all vehicle usage gives • Feasibility: can the option actually be implemented in rise to economic costs (including road wear and damage, the near future (say within a 2-year period)? If an congestion, and environmental impact), imposition of taxes option is deemed not feasible, further assessment in and charges on road users is justified from an efficiency terms of the following criteria is not made. point of view. Presumably Option 2, which involves tolls • Efficiency: is economic efficiency improved if the on a system (or network) of roads, is better than options 4 option is implemented? and 5, which involve tolls on selected roads. • Benefit principle: is there are a clear relationship between those who pay and those who benefit? • Administrative costs. Criterion (c) • The need to preserve the integrity of the system and minimize the risk of fraud. All the remaining options satisfy the benefit principle, as • Governance: the need to ensure the proper use of the already argued. However, from the point of view of road funds generated by the road user charges, including users, benefits can only be identified when there is an “obvi- the setting of charges. This dimension is closely ous” benchmark representing a situation without the road related to the mechanism used to channel revenues back works concerned. In Options 4 and 5, tolls are imposed on to the road sector. account of an improvement (reconstruction and upgrading) in the road network and/or the provision of maintenance and Assessment operations services, which yield benefits that the road user can identify. On these grounds, it may be argued that Options 4 and 5 better satisfy the benefit principle than Option 2. Criterion (a) Criterion (d) Options 1 and 3 are deemed not feasible in the short term. The main reasons that Option 1 is not feasible are Administrative costs associated with tolls are gener-

12 Heggie, Ian & Piers Vickers (1998): Commercial Management and ally high, as they require the collection and administration Financing of Roads , World Bank Technical Paper Number 409, The 13 World Bank,. Washington, D.C. The main argument is the previous toll system, which was operational.

66 Securing Afghanistan’s Future: Transport Sector of cash. There is, in principle, no distinction in this regard as superior to systems based on tolls. They are better to between Options 2, 4 and 5. minimize fraud, and administrative costs are small. Fully developed conventional road user charges are also efficient. Criterion (e) And these are also the reasons why most countries that are moving away from traditional road financing and toward The integrity of a tolling system is difficult to ensure financing by way of charging road users, are using such under the present circumstances in Afghanistan. Tolling conventional road user charges. systems are also exposed to the risk of fraud because of the Therefore, in the medium term, the main option is the handling of cash. Option 5 is the best system in this first one, an option that may be considered once a regime regard, as it allows for the contractor(s) for the road works of vehicle fuel taxation has been imposed and a vehicle reg- to be engaged also in the collection of tolls. Since the con- ister is in place, including the related management capac- tractor isbeing paid from the toll revenues (albeit backed ity. However, as already mentioned, for this option to be up by a government guarantee), he has a vested interest in considered in the medium term, it will be necessary to ensuring the integrity of the system. develop a robust allocation mechanism and an adequate system of control against misuse and fraud. The finding that conventional road user charges are Criterion (f) viewed as a superior option in a medium term also sug- gests (and is a further argument for) why a system of gen- General tolls (Option 2) as well as Option 4 require a eral road tolls (Option 2) is not a good option in the short mechanism for allocating the toll revenues back to road term. If such a system is introduced, it will eventually be- works. There is, in addition, a need to ensure that, after come more difficult to dismantle it. Option 5, on the other that allocation has been made, the money is put to proper hand, is easier to phase out, as it is effectively linked to the use. This is demanding, since the present planning, bud- financing of a specific number of contracts. Since these geting, and follow-up systems of MPW operations are contracts would be assumed to be for periods of some 4-6 poorly developed. years,15 phasing the tolls out in the medium term will be Option 5 is much simpler in this regard as the money more or less automatic. collected is tied to the financing of specific contracts. The main issue to be dealt with is how to set the level of the tolls to ensure that enough money is generated to be able to fi- Recommendations nance the contracts. 14 The outcome of the assessment in terms of the indi- A system for imposing tolls on vehicles using national cated criteria is that Option 5 is the preferred one for the roads that have been upgraded and/or rehabilitated should short term. It is recommended that both variants, i.e., that be introduced in the near future. The toll revenues should the tolls may be linked to one contract (i.e. one road) or to be used to finance the contracts for routine maintenance a number of contracts (i.e. a collection of roads), be al- (including operations) of these roads following completion lowed for. The reason is that some roads are faced with of the upgrading and/or rehabilitation works, and the tolls specific demands, e.g., the road through the Salang tunnel, should be set to provide for full financing of these con- giving rise to the need to set much higher tolls than for tracts. The system should allow for a specific contract to be other roads. financed exclusively by the tolls collected on the road concerned, as well as cross-subsidization between different roads that have been upgraded or rehabilitated. Assessment for the This toll system is viewed as an interim arrangement. Medium Term In the medium term, it is envisaged that the Government will introduce conventional taxes on fuel and vehicles. The Government may then also consider the possibility of in- As a whole, and over a longer-term perspective, sys- troducing conventional road user charges (e.g., sur- tems based on conventional road user charges are viewed

14 A related issue is the relative level of tolls imposed on different types of vehicles. The toll scale used in the system in operation in Afghanistan 15 Initial contracts for road maintenance following rehabilitation should until 2002 was apparently acceptable to road users, and was also similar not include overlay (i.e., periodic maintenance) works. They should, to the one used in many other countries. therefore, not last for more than 4–6 years.

Appendixes 67 charges on fuel and vehicles) to ensure adequate financing ally, a plan for its implementation should be prepared. The to preserve the road network. World Bank should be approached for the financing of this design and plan, under the Emergency Transport and Re- Actions habilitation Project.

A complete design of the recommended new system, including draft legislation, should be prepared. Addition-

68 Securing Afghanistan’s Future: Transport Sector

Expected Results Expected

for a national railroad network undertaken. network railroad national a for

Continued capacity building. New feasibility study feasibility New building. capacity Continued

plexes, truck parking, and dedicated warehouses. dedicated and parking, truck plexes,

gether with other facilities such as customs com- customs as such facilities other with gether

Torghundi, Hairatan, Spin Boldak, and Torkham to- Torkham and Boldak, Spin Hairatan, Torghundi,

patch and Receiving Stations at Islam Qala, Islam at Stations Receiving and patch

Operation, maintenance, and improvement of Dis- of improvement and maintenance, Operation,

ment of road transport and traffic. and transport road of ment

1383–1385 programs continued for further improve- further for continued programs 1383–1385

ist sites continued. sites ist

training and other facilities. Development facilities. other and tour- training 20 of

ment and skill development, and establishment of establishment and development, skill and ment

tinued in a planned way including training, recruit- training, including way planned a in tinued

source development for the civil aviation sector con- sector aviation civil the for development source

19 smaller aircraft (public and private). Human re- Human private). and (public aircraft smaller 19

domestic carriers. Acquisition of 8 wide-bodied and wide-bodied 8 of Acquisition carriers. domestic

handle increasing number of landings by foreign and foreign by landings of number increasing handle

operating to international standards (ICAO), able to able (ICAO), standards international to operating

gional airports, all domestic and international airports international and domestic all airports, gional

Jalalabad, and Mazar-e-Sharif and 15 domestic/re- 15 and Mazar-e-Sharif and Jalalabad,

Upgrading of 4 international airports at Herat, Kabul, Herat, at airports international 4 of Upgrading

improved in the years 1386–1389. years the in improved

ies for additional road segments to be rehabilitated/ be to segments road additional for ies

of provincial roads and 600 km of rural roads. Stud- roads. rural of km 600 and roads provincial of

per Corridor, 842 km of National Highway, 1,982 km 1,982 Highway, National of km 842 Corridor, per

Initiation and partial completion of 2,323 km of Su- of km 2,323 of completion partial and Initiation

ng, expanding, and improving roads and highways, and roads improving and expanding, ng,

eseeable future. eseeable

mpetence, strengthen market and international linkages, international and market strengthen mpetence,

Expected Results Expected

mprovements of selected road segments, using theMinistry using segments, road selected of mprovements

posal for a national railroad system completed. system railroad national a for posal

eration and maintenance. Review of the 1975 study of a pro- a of study 1975 the of Review maintenance. and eration

parking, and dedicated warehouses. Capacity building for op- for building Capacity warehouses. dedicated and parking,

gether with other facilities such as customs complexes, truck complexes, customs as such facilities other with gether

lam Qala, Torghundi, Hairatan, Spin Boldak, and Torkham to- Torkham and Boldak, Spin Hairatan, Torghundi, Qala, lam

Establishment of five Dispatch and Receiving Stations at Is- at Stations Receiving and Dispatch five of Establishment

improve road safety, and reduce environmental pollution. environmental reduce and safety, road improve

mentation of policy and regulations to regulate road traffic, road regulate to regulations and policy of mentation

facilities for the road transport sector; development and imple- and development sector; transport road the for facilities

public transport and goods movement; provision of support of provision movement; goods and transport public

major cities started; strengthening of intercity and interregional and intercity of strengthening started; cities major

Restoration of mass public transportation in Kabul and other and Kabul in transportation public mass of Restoration

ment of 20 tourist sites. tourist 20 of ment

tablishment of training and other facilities. Initiating develop- Initiating facilities. other and training of tablishment

including training, recruitment and skill development, and es- and development, skill and recruitment training, including

opment for the civil aviation sector initiated in a planned way, planned a in initiated sector aviation civil the for opment

smaller aircraft (public and private). Human resource devel- resource Human private). and (public aircraft smaller

domestic airports. Acquisition of two wide-bodied and eight and wide-bodied two of Acquisition airports. domestic

airports to operate according to ICAO-approved standards for standards ICAO-approved to according operate to airports

foreign carriers; and partially completing 15 domestic/regional 15 completing partially and carriers; foreign

(ICAO) standards, all capable of handling more landings by landings more handling of capable all standards, (ICAO)

ports at Herat, Jalalabad, and Mazar-e-Sharif to international to ports Mazar-e-Sharif and Jalalabad, Herat, at

Upgrading of international airport at Kabul; raising three air- three raising Kabul; at airport international of Upgrading

segments to be rehabilitated/improved in the years 1386–1389. years the in rehabilitated/improved be to segments

roads and 900 km of rural roads. Studies for additional road additional for Studies roads. rural of km 900 and roads

kilometers (km) of national highway, 2,973 km of provincial of km 2,973 highway, national of (km) kilometers

pleted by 2005/1384. Initiation and partial completion of 1,333 of completion partial and Initiation 2005/1384. by pleted

Spin Boldak, Hairatan-Naibabad, Naibabad-Pol-e Khomri com- Khomri Naibabad-Pol-e Hairatan-Naibabad, Boldak, Spin

Khomri, Doshi-Salang-Kabul, Kabul-Kandahar and Kandahar- and Kabul-Kandahar Doshi-Salang-Kabul, Khomri,

Rehabilitation of major segments like Shirkhan Bandar-Pol-e Shirkhan like segments major of Rehabilitation

of Public Works, provincial, and local contractor resources. contractor local and provincial, Works, Public of

Subprogram Objectives and Expected Results Expected and Objectives Subprogram

Appendix 10. Transport Program Objectives Program Transport 10. Appendix

Sector Objectives Sector

creasing cross-border trade. cross-border creasing

substantially reducing transport cost and in- and cost transport reducing substantially

shipments in and out of the country, thereby country, the of out and in shipments

Afghan border to receive and dispatch bulk dispatch and receive to border Afghan

neighboring countries that extend to the to extend that countries neighboring

advantage of the existing railway networks in networks railway existing the of advantage

The objective of this subprogram is to take to is subprogram this of objective The

all areas of the country. the of areas all

sary public and private transport services in services transport private and public sary

nance and allow better operation of neces- of operation better allow and nance

and improve the vehicle fleet and its mainte- its and fleet vehicle the improve and

The objective of this subprogram is to increase to is subprogram this of objective The

low-volume high-value goods. high-value low-volume

attractive destination, and increasing trade in trade increasing and destination, attractive

of Afghanistan should become an increasingly an become should Afghanistan of

ists, for whom the natural and historical sites historical and natural the whom for ists,

cilitating movement of people, including tour- including people, of movement cilitating

between major cities and towns, thereby fa- thereby towns, and cities major between

the rest of the world and within the country the within and world the of rest the

proved linkages and faster travel to and from and to travel faster and linkages proved

together with tourism services, allowing im- allowing services, tourism with together

bilitate and improve airports and air transport air and airports improve and bilitate

The objective of this subprogram is to reha- to is subprogram this of objective The

markets and thus reducing poverty. reducing thus and markets

development through improving access to access improving through development

boring countries, thereby facilitating economic facilitating thereby countries, boring

strengthen international linkages with neigh- with linkages international strengthen

and provincial and district headquarters; and headquarters; district and provincial and

cial, industrial production and mining centers, mining and production industrial cial,

tween the capital, all major cities, commer- cities, major all capital, the tween

network; strengthen domestic linkages be- linkages domestic strengthen network;

bilitate and improve the roads and highways and roads the improve and bilitate

The objective of this subprogram is to reha- to is subprogram this of objective The

Number 1 2 3 4 5 6 7

Fiscal Year Fiscal 2004 2005 2006 2007 2008 2009 2010

and create opportunities for the poor to share in the benefits of growth and prosperity, thereby eliminating poverty in the for the in poverty eliminating thereby prosperity, and growth of benefits the in share to poor the for opportunities create and

Solar Year Solar 1383 1384 1385 1386 1387 1388 1389

civil aviation, and transport services that will allow efficient public and private sector operations in respective areas of co of areas respective in operations sector private and public efficient allow will that services transport and aviation, civil

The objective of this program is to promote national and regional/subregional integration, development, and security by restori by security and development, integration, regional/subregional and national promote to is program this of objective The

Railways

Subprogram 4: Subprogram

and Traffic and

Road Transport Road

Subprogram 3: Subprogram

Tourism

Civil Aviation and Aviation Civil

Subprogram 2: Subprogram

structure

Road Infra- Road Subprogram 1: Subprogram

Appendixes 69 1390–1392 2011–2013/ (kilometers) 1383–1389 2004–2010/ (kilometers) 14.7 1,087.4 2,174.7 2,738.3 1,486.6 4,484.0 4,484.0 ($ million) Total Cost Total 1383–1389 2004–2010/ 16.4 41.114.6 137.0 36.6 137.0 122.0 122.0 ($ million) 1386–1389 2007–2010/ ($ million) 2006/1385 ($ million) 2005/1384 31.7 63.4 63.4 95.0 253.4 506.8 760.2 122.8 245.7 298.0 420.9 148.7 297.3 446.0 594.6 ($ million) 2004/1383 0.75 0.0 0.0 0.0 93.0 93.0 124.0 0.0 Cost/km ($ million) Estimated 24.0 0.3 0.4 0.7 1.1 1.4 3.6 12.0 12.0 253.0 0.5 6.3 12.7572.0 19.0155.0174.0 0.3136.0 0.5155.0 25.3 0.3 0.3 8.6 0.5156.0 3.9 63.3 2.6 2.0 17.2 0.3 3.9 7.8 126.5 5.2 25.7 4.1 2.3 7.8 11.6 126.5 7.8 34.3 6.1 4.7 11.6 15.5 10.4 85.8 7.0 8.2 15.5 38.8 26.1 286.0 20.4 38.8 9.4 77.5 286.0 87.0 68.0 77.5 23.4 77.5 87.0 68.0 77.5 78.0 78.0 775.0776.0478.0 0.5817.0 0.5172.0 0.5375.0 0.5 19.4 0.5 19.4 0.5 12.0 20.4 38.8 38.8 4.3 23.9 9.4 40.9 38.8 38.8 8.6 35.9 18.8 61.3 58.1 58.2 12.9 28.1 47.8 81.7 155.0 155.2 17.2 119.5 37.5 204.3 310.0 310.4 43.0 239.0 93.8 408.5 465.0 465.6 239.0 86.0 187.5 408.5 187.5 86.0 1,162.5 0.75 0.0 0.0 0.0 479.5 479.5 639.4 523.1 3.226.5 0.75 0.0 0.0 0.0 1,742.5 1.742.5 2,323.4 903.1 4.913.0 0.5 8,968.0 0.3 1,267.0 0.5 Kilometers 2 3 (two-lane

1 Appendix 11A. Roads and Highways Investment Program 1383–1389/2004–2010 Appendix 11A. Type of Road Type Kabul–TorkhamAndkhuoy–AqinaDelaram–KandaharOperation and Maintenance (0.9%) 224.0 216.0 37.0 0.75 0.75 0.75 0.0 0.0 0.0 0.0 0.0 0.0 0.0 0.0 0.0 0.0 0.0 162.0 0.0 0.0 0.0 162.0 0.0 15.7 0.0 216.0 0.0 0.0 0.0 224.0 37.0 expansion to make four lanes) Shirkhan Bandar–Pule Khumri– Boldak Kabul–Kandahar–Spin Naibabad–Mazar-e-Sharif– Andkhuoy–Herat–Delaram- ZaranjHerat–TorghundiHerat–Islam Qala 119.0 124.0 1,344.0 0.75 0.75 0.0 0.0 0.0 0.0 0.0 0.0 0.0 1,008.0 1,008.0 0.0 1,344.0 0.0 0.0 119.0 Badakhshan (1) Bamian Konar (1) East-West Highway Badakhshan (2) Konduz Baghlan (1) Baghlan (2) Ghowr 244.0 0.3 3.7 7.3 11.0 Farah Road–Delaram Takhar 274.0 0.3 4.1 8.2 12.3 North-South Highway 1 North-South Highway 2 Khulm–Ishkashim Asadabad–Ghazni Network Jabal Saraj–Nurestan Network Other additional roads Operation and Maintenance (1.4%) 1.7 5.0 9.0 A. Super Corridor B. National Highway C. Provincial Roads

70 Securing Afghanistan’s Future: Transport Sector 1390–1392 2011–2013/ (kilometers) (cont’d.) 1383–1389 2004–2010/ (kilometers) ($ million) Total Cost Total 1383–1389 2004–2010/ ($ million) 1386–1389 2007–2010/ 2.9 3.9 9.86.0 19.5 8.0 19.5 20.06.5 40.0 40.0 8.75.8 21.8 72.5 7.7 72.5 19.4 64.5 64.5 23.4 31.3 78.216.2 260.5 21.6 260.5 54.0 180.0 180.0 ($ million) 2006/1385 8.3 12.4 16.6 41.4 138.0 138.0 11.7 17.6 23.4 58.5 117.0 117.0 ($ million) 2005/1384 0.52.1 1.1 4.1 1.6 6.2 2.2 8.26.0 5.4 12.0 20.5 18.0 18.0 41.07.16.4 24.1 18.0 41.0 3.6 14.21.8 12.7 60.2 21.3 7.2 19.1 3.5 200.5 10.8 28.4 25.4 5.3 200.5 14.4 71.0 63.5 7.0 36.0 236.5 127.0 17.5 236.5 120.0 127.0 35.0 120.0 35.0 ($ million) 2004/1383 Cost/km ($ million) Estimated Kilometers cont’d. Appendix 11A. Roads and Highways Investment Program 1383–1389/2004–2010 Appendix 11A. Type of Road Type Konar (2)NangarharLaghmanLowgar (1)Lowgar (2)KapisaKabulParvanVardakHerat (1)Herat (2)NurestanJowzjan 39.0 237.0PaktiaHelmand 38.0 36.0Balkh 0.5 0.3 82.0Paktika (1)Paktika (2) 0.3 0.3 Oruzgan 88.0 0.5 Faryab 1.0 3.6 68.0 222.0Nimruz (1) 521.0Nimruz (2) 0.6 90.0 0.3Sar-e Pol 80.0 0.3 0.3 2.0 7.1 315.0Samangan 0.3Ghazni 0.3 276.0 1.1 1.3Kandahar (1) 0.5 0.3 10.7 395.0 225.0Kandahar (2) 1.0 3.3Zabol 0.3 401.0 7.8 1.4Badghis (1) 372.0 234.0 1.7 2.6 0.3 0.3Badghis (2) 2.0 14.2 4.7Khowst 2.0 360.0 6.7 0.3 15.6 Farah 4.1 0.3 0.5 111.0 2.7 133.0Operation and Maintenance (3.4%) 4.0 2.3 5.9 6.0 81.0 4.0 0.3 10.0 9.5 35.6 3.1 145.0 325.0 0.3 0.3 5.6 5.9 4.1 473.0 0.5 12.0 11.9 254.0 14.2 5.3 459.0 0.3 5.7 5.4 13.3 118.5 0.3 4.1 1.7 11.2 0.3 2.0 240.0 17.8 18.0 0.5 5.4 0.3 2.0 10.8 118.5 279.0 18.9 13.2 70.0 2.2 33.3 19.0 4.9 16.7 10.2 3.3 0.3 4.0 129.0 23.7 24.1 13.5 0.3 4.1 0.5 6.9 47.3 300.0 4.4 44.0 19.0 111.0 9.8 22.3 5.0 0.3 34.0 6.0 59.3 13.8 60.2 6.1 4.2 0.3 45.0 111.0 157.5 14.6 44.0 55.8 3.4 34.0 1.9 6.7 20.7 8.0 197.5 112.5 8.4 157.5 45.0 4.5 8.1 19.5 10.1 186.0 3.9 197.5 112.5 16.7 27.5 20.0 12.6 9.0 20.3 48.8 186.0 20.1 68.9 55.5 16.7 13.5 66.5 162.5 40.5 33.5 229.5 55.5 66.5 41.9 18.0 162.5 40.5 229.5 139.5 45.0 139.5 150.0 150.0 C. Provincial Roads

Appendixes 71

1390–1392

2011–2013/

(kilometers)

(cont’d.)

1383–1389

2004–2010/ (kilometers)

ters covering all stretches.

($ million) ($

Total Cost Total

1383–1389 2004–2010/ y framework, and administration. All costs are All costs y framework, and administration.

side. In more important segments designated Type designated segments side. In more important

2,886.2 4,571.4 10,482.1 9.625.4

($ million) ($

1386–1389

2007–2010/

($ million) ($

2006/1385

1.3 17.1 25.7 37.3

20.9 22.2 23.7 26.0

21.8 21.8 21.8 37.5

578.8 799.8

($ million) ($

2005/1384

2.8 5.6 7.8 28.2 70.0

0.0 5.2 15.5 30.0 65.3

10.0 10.0 10.0 40.0 70.0

($ million) ($

2004/1383

Cost/km

($ million) ($

Estimated

0.145337838 0.17102083 0.20296839 0.22884267 0.23270513

0.000145338 0.0001710 0.0002030 0.0002288 0.0002327

3,000.0 0.05 7.5 15.0 22.5 30.0 75.0 1,500.0 1,500.0

20,107.5 53.2 56.8 63.9 74.1 103.6

20,107.5 291.8

Kilometers

, 2003, and staff estimates. staff and 2003, ,

ransport Sector Review Sector ransport Appendix 11A. Roads and Highways Investment Program 1383–1389/2004–2010 1383–1389/2004–2010 Program Investment Highways and Roads 11A. Appendix Super Corridor segtments are 4 lanes dual carriageway with 2-meter paved shoulders on each side, with central berge of 2–12 me are 4 lanes dual carriageway with 2-meter paved Super Corridor segtments

Type of Road of Type

Rural Roads Rural 3,000.0 2.8 2.8 2.8 2.8 2.8

Provincial Roads Provincial 8,968.0 8.4 1

National Highway National 4,913.0 20.2

Super Corridor Super 3,226.5 21.8

Roads Rehabilitated/Upgraded Roads Operation & Maintenance (1.9%) Maintenance & Operation 0.1 0.4 0.8 1.4 Two lanes of 7-meter carriageway and 2-meter paved shoulders on each side. Two it is 5.5-meter carriageway and 1-meter gravel shoulder on each 1 segments, Type Provincial roads have two specifications. For Five-meter earthen road with 1-meter shoulder on each side. of policy and regulator Capacity building relates to strategies, planning, studies, maintenance, development and implementation 2, it is 2 lanes of 7-meter carriageway and 1.5-meter one-layer paved shoulder on eaach side. share of rural road maintenance cost. attributable to public sector except a small amount of communities’

Notes: 2 3 4 5

Paved Roads per 1,000 people (km) people 1,000 per Roads Paved

Paved Roads per capita (km) capita per Roads Paved

I.Maintenance and Operation Total

H.Highways and Roads Total

G.Building Capacity

F. Assistance (1%) Technical

E.of Cost Maintenance & Operation

D.Roads Rural Sources: T

72 Securing Afghanistan’s Future: Transport Sector Appendix 11B. Roads and Highways Investment Program 1383–1389/2004–2010 Average Maintenance Cost

Surface Type Annual Road type O&M (%)

Paved 6,763 Super Corridor 0.9 Gravel 4,113 National Highway 1.4 Earth 937 Provincial Roads 2.3 Average 2,908 Rural Roads 1.9

Source: Transport Sector Review, 2003.

Appendix 11C. Roads and Highways Investment Program 1383–1389/2004–2010 International Comparison: Road Density in Countries with Similar Per Capita GNP

Kilometers of Kilometers of Kilometers of Paved Road Total Road Paved Road per Square GNP per per 1,000 per 1,000 Kilometer of Country Capita (2000) People (2000) People (2000) Area (2000)

Armenia 520 3.98 3.83 0.531 Azerbaijan 600 3.12 2.88 0.287 Bangladesh 370 1.58 0.15 1.441 Cameroon 580 2.29 0.28 0.072 Congo Republic 570 4.27 0.41 0.037 Cote d’Ivoire 600 3.15 0.31 0.157 Guinea 450 4.36 0.72 0.124 Haiti 510 0.52 0.13 0.149 India 450 3.27 1.49 1.010 Indonesia 570 1.63 0.76 0.180 Nepal 240 0.575 0.18 0.090 Pakistan 440 1.84 0.79 0.320 Senegal 490 1.50 0.43 0/074 Sri Lanka 850 5.09 5.83 1.465 Zimbabwe 460 1.40 0.67 0.047

Afghanistan 2003 186 0.96 0.15 0.032 2010 425 0.96 0.23 0.032 2015 598 — 0.46 —

Note: GNP = gross national product; — = not available. Sources: World Bank, World Tables, 2002, and staff estimates.

Appendixes 73 Appendix 12A. Civil Aviation and Tourism Investment Program 1383–1389/2004–2010 Estimated Cost 2004/ 2005/ 2006/ 2007–2010/ Project/Activity ($ milliion)1383 1384 1385 1386–1389 Quantity

A. Airports (Upgrade 3 international airports at 350.0 17.5 35.0 105.0 192.5 20 at Herat, Mazar-e-Sharif, and Kabul, upgrade 16 domestic/regional airports* – Runway 105.0 5.3 10.5 31.5 57.8 – Terminal and Required facilities 70.0 3.5 7.0 21.0 38.5 – Approach Road 35.0 1.8 3.5 10.5 19.3 – Air Traffic Control/Management System 52.5 2.6 5.3 15.8 28.9 – Aviation Safety 17.5 0.9 1.8 5.3 9.6 – Vehicles and Equipment 70.0 3.5 7.0 21.0 38.5 – Air Traffic Management System 20.0 1.0 2.0 6.0 11.0 – Operation and Maintenance (15%) 91.6 2.8 7.3 25.0 55.5 Total 461.6 21.3 45.3 136.0 259.0

B. Air Transport** 350.0 15.0 35.0 45.0 255.0 40 – Aircraft (10 wide-bodied for international and 30 smaller craft for regional routes, passengers, and cargo) – Hangars and Parking Bays 70.0 3.5 7.0 21.0 38.5 – Operation and Maintenance (15%) 93.8 2.8 9.1 19.0 63.0 Total 513.8 21.3 51.1 85.0 356.5

C. Mainpower (Civil Aviation)** – Training, Recruitment and Skill Development 100.0 5.0 10.0 30.0 55.0 – Training and Other Facilities 100.0 5.0 10.0 30.0 55.0 – Operation and Maintenance 49.5 1.5 4.5 13.5 30.0 Total 249.5 11.5 24.5 73.5 140.0 Total Civil Aviation 870.0 41.0 87.0 201.0 541.0

D. Tourism** – Site Identification and Development 70.0 7.0 10.5 14.0 38.5 20 – Hotels, Motels, Guesthouses 40.0 4.0 6.0 8.0 22.0 50 – Restaurants 5.0 0.5 0.8 1.0 2.8 25 – Entertainment 5.0 0.5 0.8 1.0 2.8 – Transport and Communication 40.0 4.0 6.0 8.0 22.0 – Promotion 15.0 1.5 2.3 3.0 8.3 – Training 5.0 0.5 0.8 1.0 2.8 – Operation and Maintenance (15%) 24.0 2.4 3.6 4.8 13.2 Total 175.0 17.5 26.3 35.0 96.3

E. Planning, Capacity Building, Development, 28.0 4.0 4.0 4.0 16.0 and Implementation of Policy and Regula- tory Framework and Administration*

F. Technical Assistance (1%) 14.3 0.8 1.5 3.3 8.7

Total Civil Aviation and Tourism 1,442.2 76.3 152.7 336.8 876.4

* Public Sector 889.3 47.5 93.1 229.2 519.5 ** Private Sector 552.9 28.8 59.6 107.6 356.9 Source: Ministry of Civil Aviation and Tourism.

74 Securing Afghanistan’s Future: Transport Sector Appendix 12B. Civil Aviation and Tourism Investment Program 1383–1389/2004–2010 Commitment for Individual Airport Upgrades

Commitment ($ million) Funds Location and Required 2004/ 2005/ 2006/ 2007–2010/ 2011–2015/ Type of Airport ($ million) 1383 1384 1385 1386–1389 1390–1394

International 4 Kabul 100.0 5.0 10.0 30.0 55.0 Herat 50.0 2.5 5.0 15.0 27.5 Mazar-e-Sharif 50.0 2.5 5.0 15.0 27.5 Jalalabad 50.0 2.5 5.0 15.0 27.5 Lowgar 0.0 0.0 0.0 0.0 0.0 1,000

Domestic 15 Konduz 10.0 0.5 1.0 3.0 5.5 Feyzabad 10.0 0.5 1.0 3.0 5.5 Bamian 5.0 0.25 0.5 1.5 2.75 Chaghcharan 5.0 0.25 0.5 1.5 2.75 Yakawlang 5.0 0.25 0.5 1.5 2.75 Sheberghan 5.0 0.25 0.5 1.5 2.75 Mehmaneh 5.0 0.25 0.5 1.5 2.75 Taloqan 5.0 0.25 0.5 1.5 2.75 Gardeyz 5.0 0.25 0.5 1.5 2.75 Khowst 5.0 0.25 0.5 1.5 2.75 Zaranj 5.0 0.25 0.5 1.5 2.75 Bost 5.0 0.25 0.5 1.5 2.75 Badakhshan 5.0 0.25 0.5 1.5 2.75 Qal’eh-ye Now 5.0 0.25 0.5 1.5 2.75 Khwahan 5.0 0.25 0.5 1.5 2.75 Total 350.0 17.5 35.0 105.0 192.5 1,000

Source: Staff estimates.

Appendixes 75 1389 2010/ Total) 2007– 1386– (55% of 1385 2006/ Total) (20% of 1384 2005/ Total) (15% of 1383 2004/ Total) (10% of vehicle divided by 1 million. ment over this period. l gross domestic product growth rate over of Vehicles ($ million) Estimated Cost Total 2003–2010 15% 1,454.2 80.8 202.0 363.5 807.9 ($) Cost of Vehicle Average Estimated 7 Vehicles Estimated Number of Increase in 2003–2010 6 of 2010 Number Vehicles Projected 5 2010 Capita Vehicle Fleet Cost Vehicle of Vehi- Number cles Per Estimated 4 2003 Vehicles Per Capita 3 of 2003 Number Vehicles Estimated % of 2003 Country Kabul as 2 2003 by Type Vehicles % Distri- bution of 1 of 2003 Number in Kabul Vehicles Estimated 2003–2010 multiplied by elasticity of vehicle growth per capita with respect to GDP growth) ^7 = 1.9487171. with respect to GDP 2003–2010 multiplied by elasticity of vehicle growth per capita Ministry of Transport estimates adjusted by the working group to reflect other sources information. group estimate. Working Estimated number of vehicles in Kabul 2003 divided by as % country 2003. population in 2003 (22 million). Estimated number of vehicles in country 2003 divided by total in country 2003 multiplied by the growth factor 2010, which is (1 + average annua Estimated number of vehicles per capita population in 2010, projected at 26 million. in country 2010 multiplied by total Projected number of vehicles per capita Projected number of vehicles in country 2010 less .95 (estiimated 2003) assuming 5% replace and technical workshops. Kabul market. Price of trolley buses includes network, electrical stations, Projected increase in number of vehicles country between 2003 and 2010 multiplied byestiimated average (used + new) cost Appendix 13A. Road Transport and Traffic Investment Program 1383–1389/ 2004–2010 and Traffic Appendix 13A. Road Transport Ministry of Transport with ADB estimates. 1 2 3 4 5 6 7 8 9 O&M = operation and maintenance. Type Vehicle TaxiBus MinibusVan, Truck 6,000 30,000Car BusTrolley 20.36 1,350 4.07O&M (15%) 38,000 66.67 0.92 20.00 25.79Total 72,000 45,000 30,000 0 75.00 48.86 80.00 0.002027 0.001351 0.00 1,800 0.003950 47,500 40.00 0.002633 147,350 100.00 0.000081 102,704 180,000 0.002140 100.00 68,468 0.000158 0.008108 0.004170 59,953 0.00 39,968 108,408 0.015800 4,108 0.000000 7,000 410,811 10,000 63,283 304,300 2,398 239,811 419.7 0.013707 379.7 30,000 50,000 10,000 0.026712 1,898.5 42.0 40.0 694,799 2,398.1 119.9 300 189.9 405,714 63.0 60.0 239.8 284.8 12.0 83.9 359.7 79.9 300 359.7 18.0 479.6 230.8 1,044.2 219.8 500,000 1,319.0 24.0 6,840.1 150.0 65.9 619.4 15.0 1,009.9 1,440.7 22.5 3,770.1 30.0 82.5 Notes: Source:

76 Securing Afghanistan’s Future: Transport Sector Appendix 13B. Road Transport and Traffic Investment Program 1383–1389/2004–2010 Vehicle Fleet Support Service Cost

2007–2010/ Estimated 2004/1383 2005/1384 2006/1385 1386–1389 Total Cost (10% of (15% of 20% of (55% of Unit Cost 2003–2010 total, total, total, total, Service Type Quantity ($) ($ million) $ million) $ million) $ million) $ million)

Depots/Terminals Kabul 4 10,000,000 40.0 4.0 6.0 8.0 22.0 Four Major Cities 8 500,000 4.0 0.4 0.6 0.8 2.2 Interprovince 32 200,000 6.4 0.6 1.0 1.3 3.5

Parking Facilities 35 200,000 7.0 0.7 1.1 1.4 3.9

Stands/Stops Kabul 100 10,000 1.0 0.1 0.2 0.2 0.6 Four Major Cities 80 5,000 0.4 0.0 0.1 0.1 0.2

Workshops (3% of incremental investment in vehicles) 273.6 27.4 41.0 54.7 150.5

Transporters’ Highway Facilities 30 1,000,000 30.0 3.0 4.5 6.0 16.5

Road Traffic Management System Kabul 40 50,000 2.0 0.2 0.3 0.4 1.1 Four Major Cities 40 50,000 4.0 0.4 0.6 0.8 2.2

Vehicle Support Services at Border Crossiings 8 20,000,000 160.0 16.0 24.0 32.0 88.0

Operation and Maintenance (15%) 15% 142.7 7.9 19.8 35.7 79.3

Total 671.1 60.8 99.1 141.3 369.9

Source: Staff estimates.

Appendixes 77 Appendix 13. Road Transport and Traffic Investment Program 2004–2010/1383–1389 C. Vehicle Fleet Registration Estimated 2007–2010/ Total Cost 2004/1383 2005/1384 2006/1385 1386–1389 Unit Cost 2003–2010 (10% of (15% of 20% of (55% of Activity Quantity ($) ($ million) total) total) total) total) Registration 32 500,000 16.0 1.6 2.4 3.2 8.8 Drivers’ Licensing 32 50,000 1.6 0.2 0.2 0.3 0.9 Inspection 320 5,000 1.6 0.2 0.2 0.3 0.9 Weighing Stations 30 20,000 0.6 0.1 0.1 0.1 0.3 Transport Management 5.0 0.5 0.8 1.0 2.8 Operation and Maintenance (15%) 15% 3.7 0.4 0.6 0.7 2.0 Total 28.5 2.9 4.3 5.7 15.7

Source: Staff Estimates.

D. Strategies, Planning, Studies, Capacity Building, Development, Implementation of Policy and Regulatory Framework and Administration, and Technical Assistance

Estimated 1386–1389/ Total Cost 1383/2004 1384/2005 1385/2006 2007–2010 2003–2010 (10% of (15% of 20% of (55% of Activity ($ million) total) total) total) total) Strategies, Planning 10.0 1.0 1.5 2.0 5.5 Special Studies 8.0 0.8 1.2 1.6 4.4 Capacity Building 10.0 1.0 1.5 2.0 5.5 Development and Implementation of Policy and Regulatory Framework 5.0 0.5 0.8 1.0 2.8 Administration 20.0 2.0 3.0 4.0 11.0 Operation and Maintenance (15%) 14.3 0.8 2.0 3.6 8.0 Technical Assistance (.1%) 7.6 6.1 9.9 14.2 37.1

Source: Staff Estimates.

E. Total Road Transport and Traffic Estimated 2007–2010/ Total Cost 2004/1383 2005/1384 2006/1385 1386–1389 2003–2010 (10% of (15% of 20% of (55% of Activity ($ million) total) total) total) total)

A. Vehicle Fleet Cost 6,840.0 619.4 1,009.9 1,449.7 3,770..1 B. Vehicle Fleet Support Service Cost 671.0 60.8 99.1 141.3 369.9 C. Vehicle Fleet Registration 28.5 2.9 4.3 5.7 15.7 D. Strategies, Planning, Studies, and Others 67.3 6.1 9.9 14.2 37.1 E. Technical Assistance 7.6 0.7 1.1 1.6 4.2 TOTAL 7,614.6 689.8 1.124.3 1,603.6 4.197.0 Public 416.1 40.9 62.2 84.0 228.9 Private 7,198.50 648.88 1,062.03 1,519.54 3,968.04

Source: Staff Estimates.

78 Securing Afghanistan’s Future: Transport Sector Appendix 13. Road Transport and Traffic Investment Program 1383–1389/2004–2010 F. International Comparison: Motor Vehicles Per Capita in Countries with Similar Per Capita GNP

Motor Vehicles Buses Per GNP Per Per 1,000 1,000 Capita People People Country 2000 ($) 2000 2000

Armenia 520 5.0 — Azerbaijan 600 49.0 — Bangladesh 370 1.0 — Cameroon 580 10.0 — Congo Republic 570 18.0 — Cote d’Ivoire 600 23.0 — Guinea 450 4.0 — India 450 8.0 — Indonesia 570 25.0 — Pakistan 440 8.00 — Senegal 490 11.0 — Sri Lanka 850 34.0 —

Afghanistan 2003 186 13.7 0.059 2010 (est.) 425 26.7 0.151 2015 (est.) 598 40.0 0.300

Note: — = not available; GNP = gross national product. Source: World Bank, World Tables 2002, and staff estimates.

G. Proposed Investments by Ministry of Transport

Cost ($ Item Quantity millions)

Truck Fleet 75 15.0 Millie Bus 963 66.5 Technical and Maintenance 6 3.0 Workshops Trolley Bus System 300 150.0 (buses and network) Transport Terminals in Kabul 4 40.0 Administrative Buildings 22 4.4 Total 278.9

Source: Ministry of Transport.

Appendixes 79 Appendix 14. Railways: Dispatch and Receiving Stations Investment Program 1383–1389/2004–2010 ($ million)

Total Cost 2004/ 2005/ 2006/ 2007–2010/ 2004–2010/ Station 1383 1384 1385 1386–1389 1383–1389

No. of DRS to be Constructed 2 2 1 0 5 1. Islam Qila 20 20 2. Torghundi 20 20 3. Hairatan 20 20 4. Spin Boldak 20 20 5. Torkham 20 20 Total 40 40 20 0 100

Technical Assistance 1 1 1 3 6 Capacity Building 2 3 4 6 15 Operations and Maintenance 2 4 5 5 16

Total Railways 45 48 30 14 137

Notes: Total cost to be taken for each of the five locations @ $20 million to include (i) DRS, (ii) Customs complex, (iii) truck parking, and (iv) dedicated warehouse as per assessment of ADB Staff. Only infrastructure costs are taken into account; costs for railway lines, etc. not considered. DRS = Dispatch and Receiving Stations. Source: Staff estimates.

80 Securing Afghanistan’s Future: Transport Sector 12 1394 2015 11 1393 2014 10 1392 2013 9 1391 2012 8 2011 1390 7 0.000.000.00 89.25 168.00 27.75 1389 2010 93.00 0.00 479.53 392.34 162.00 0.00 1,008.00 0.00 6 1388 2009 5 1387 2008 4 1386 2007 3 1385 2006 298.03 420.85 1,369.15 2 1384 2005 23.90 35.85 47.80 119.50 833.71 1,191.41752.12 1,074.37567.97 776.51 3,692.73 3,495.33 2,828.02 3,692.48 3,692.48 3,692.48 1 1383 2004 1382 2003 03 1381 2002– Kabul–Kandahar–Spin Boldak Kabul–Kandahar–Spin Naibabad–Mazar-e-Sharif–Andkhuoy– Herat–Islam Qala Kabul–Torkham Andkhuoy–Aqina Delaram–Kandahar Farah Road–Delaram HighwayEast-West North-South Highway 1North-South Highway 2Khulm–EshkashemAsadabad–Ghazni network networkJabal Saraj–Nurestan Other Additional RoadsTakharBadakhshan (1) 6.33 19.38 31.68 12.65 19.40 38.75 20.43 63.35 4.30 18.98 38.80 40.85 38.75 63.35 11.95 8.60 38.80 61.28 12.90 9.38 18.75 28.13 8.58 17.16 4.11 25.30 25.74 58.13 95.03 8.22 58.20 81.70 17.20 12.33 37.50 63.25 232.50 380.10 232.80 204.25 43.00 34.32 93.75 16.44 85.80 41.10 Sher Khan Bandar–Pol-e Khomri- Herat–Delaram–Zaranj Herat–Torghundi International 0 4 5 Provincial Roads 148.66 297.32 445.98 594.64 1,345.20 Super CorridorsNational Highways 0.00 0.00 0.00 122.83 245.65 1,742.53 903.13 Paved Roads (km per 1,000) functioning as per ICAO standardNo. of airports No. of tourist sites openedMotor vehicles per 1,000 people 0.00No. of Millie buses per 1,000 urban population and Receiving StationsConstruction of Dispatching 0.15 0.059 0Roads and Highways 13.71 0 20 288.99 0.23 0.151 5 26.71 20 30 0.300 0.46 40.00 Subprogram 1: Road Infrastructure Aviation Subprogram 2: Civil Traffic and Transport Subprogram 3: Road Subprogram 4: Railways Capital Expenditures (disbursement)Capital 413.93 Appendix 15. Transport Sector Seven-Year Investment Program in Budget Format (Disbursement) Sector Seven-Year Appendix 15. Transport Solar Year Fiscal Year Number Target for Service Delivery Target Investment Program ($ million) 478.38

Appendixes 81 12 1394 2015 11 1393 2014 10 1392 2013 9 1391 2012 8 2011 1390 7 1389 2010 6 1388 2009 5 1387 2008\ 4 1386 2007 3 1.08 1.44 3.60 6.53 8.70 21.75 1385 2006 18.05 24.06 33.75 20.6621.2919.05 27.54 28.38 25.40 68.85 70.95 63.50 2 4.087.75 6.12 11.63 8.16 15.50 20.40 38.75 7.203.50 10.80 5.25 14.40 7.00 36.00 17.50 1384 2005 (cont’d.) 1 2.61 5.223.66 7.83 7.32 10.98 10.44 14.64 26.10 36.60 4.88 9.75 14.631.94 3.87 5.81 19.50 7.74 48.75 19.35 1383 2004 1382 2003 03 1381 2002– Baghlan (2)Ghowr 3.88 Kandahar (1)Kandahar (2)ZabolBadghis (1)Badghis (2)Khowst 7.10 6.35 14.19 12.70 3.60 1.75 4.19 8.37 12.56 16.74 41.85 Kunduz Baghlan (1)Bamian 2.04 0.36 0.72 GhazniFarah 6.89 13.77 4.50 9.00 13.50 18.00 45.00 Konar (1)Konar (2)NangarharLaghmanLowgar (1)Lowgar (2)KapisaKabulParvanVardakHerat (1)Herat (2)NurestanJowzjanPaktiaHelmandBalkhPaktika (1)Paktika (2)OruzganFaryab 2.34Nimruz (1) 0.98 3.56Nimruz (2) 4.68Sar-e Pol 1.95 0.57 7.11 0.54Samangan 7.02 2.05 1.14 2.93 10.67 1.08 4.10 1.32 1.71 1.62 1.02 6.15 2.64 3.33 1.35 7.82 2.04 6.66 3.96 2.00 15.63 2.70 4.73 3.06 9.99 4.00 23.45 4.14 4.05 9.45 5.93 6.02 6.00 8.28 14.18 6.02 12.03 11.85 9.36 12.42 14.22 5.58 5.85 3.90 12.03 17.78 11.16 11.70 5.40 18.05 2.28 2.16 16.74 17.55 1.67 10.80 2.00 8.20 2.03 16.20 3.33 3.99 2.18 4.05 5.28 5.00 23.40 4.35 5.99 4.08 13.32 35.55 31.26 6.08 9.75 5.40 18.90 8.00 5.70 5.40 20.50 16.56 23.70 13.20 24.06 22.32 23.40 10.20 33.30 78.15 13.50 21.60 47.25 20.00 41.40 6.66 7.98 8.10 59.25 60.15 55.80 58.50 54.00 16.65 19.95 20.25 Rural RoadsCapacity Building 10.00 7.50 10.00 15.00 10.00 22.50 40.00 30.00 75.00 Appendix 15. Transport Sector Seven-Year Investment Program in Budget Format (Disbursement) Sector Seven-Year Appendix 15. Transport Solar Year Fiscal Year Number

82 Securing Afghanistan’s Future: Transport Sector 12 1394 2015 11 1393 2014 10 1392 2013 9 1391 2012 8 2011 1390 7 1389 2010 6 1389 2009 5 1387 2008\ 4 1386 2007 3 1385 2006 2 9.60 12.80 35.20 1384 2005 (cont’d.) 1 5.23 9.27 13.76 44.05 1383 2004 41.25 76.40 185.2036.46 55.49 74.9142.00 43.00 413.15 24.0064.45 204.11 81.59 117.04 6.00 197.40 103.59 1382 2003 03 1381 2002– International Civil Aviation Organisation. AirportAir Transport and Other FacilitiesTraining 3.00 6.00 18.00 5.55 18.50 12.60 37.00 19.80 111.00 33.00 203.50 88.05 Capacity BuildingCapacity 7.80 11.20 23.60 53.40 Civil AviationTourism Fleet, Support Services, and RegulationVehicle BuildingCapacity and Receiving StationsDispatching BuildingCapacity 30.37 45.55 60.73 27.05 55.60 148.80 40.00 40.00 6.40 20.00 6.10 9.94 167.01 14.18 2.00 3.00 324.55 4.00 0.00 37.10 6.00 Staff estimates. Staff Roads and HighwaysCivil Aviation and TrafficRoad Transport Railways 0.69 2.79 1.12 5.63 1.60 7.82 0.76 1.51 1.00 3.33 1.00 1.00 28.18 4.19 8.68 3.00 Road Transport and Traffic Road Transport Civil Aviation and Tourism Aviation Civil Roads and HighwaysCivil Aviation and TrafficRoad Transport RailwaysUnit Cost Potential User Fee (based on international experience) 53.24 3.75 56.78 5.63 63.86 7.50 5.47 15.19 40.69 2.00 4.00 5.00 74.10 103.6 20.63 97.68 5.00 Railways Recurrent Costs ($ million) Recurrent Costs Potential Cost Recovery ($ perXXX) Technical Assistance Technical Appendix 15. Transport Sector Seven-Year Investment Program in Budget Format (Disbursement) Sector Seven-Year Appendix 15. Transport Note: ICAO = Source: Operations and Maintenance Solar Year Fiscal Year Number

Appendixes 83 ($ million) Total Cost Total Private Total Cost Total 1383–1389 2007–2010/ Public 1386–1389 2007–20010/ 0.00 30.00 0.00 75.00 0.00 75.00 2006/135 7.82 0.00 28.18 0.003.33 44.42 0.00 0.00 8.681.60 44.42 0.00 0.00 14.28 4.19 0.001.00 0.00 14.28 0.00 7.61 3.00 0.00 0.00 7.61 6.00 0.00 6.00 Public Public 0.000.00 0.00 298.03 0.00 0.00 1,742.53 420.85 0.00 0.00 1.742.53 1,087.35 0.00 0.00 1,742.53 1,087.35 845.31 60.73 1.127.08 167.01 3,099.48 303.65 5,635.42 5,939.07 2005/1384 9.945.63 0.00 0.00 14.18 7.50 0.004.00 37.10 0.00 0.00 20.63 0.00 5.00 0.00 67.31 0.00 37.50 0.00 5.00 67.31 0.00 0.00 37.50 16.00 0.00 16.00 3.00 0.00 4.00 0.00 6.00 0.00 15.00 0.00 15.00 11.20 5.80 23.60 14.40 53.40 28.60 96.00 52.00 148.00 81.59 10.31 117.04 21.56 197.40 64.02 460.49 99.88 560.37 10.0056.78 0.00 0.00 10.0012.60 63.86 0.00 29.40 0.00 40.0015.19 19.80 74.10 10.31 0.00 46.20 40.69 0.00 88.05 70.00 247.97 21.56 205.45 0.00 126.00 97.68 0.00 70.00 294.00 64.02 247.97 420.00 159.02 99.88 258.90 40.00 0.00 20.00 0.00 0.00 0.00 100.00 0.00 100.00 297.32 0.00 445.98 0.00 594.64 0.00 1,486.60 0.00 1,486.60 2.00 6.00 4.00 18.00 12.00 33.00 22.00 60.00 40.00 100.00 2004/1383 41.07 22.13 83.50 49.51 216.4240.90 563.54 94.16 62.23 484.31 845.31 320.07 84.01 825.30 1,127.08 485.88 228.93 1,311.18 3.099.48 416.07 5,635.42 6,051.49 45.00 0.00 48.00 0.00 30.00 0.00 14.00 0.00 137.00 0.00 137.00 407.53 581.69 742.52 884.51 1,161.57 1,199.68 3,460.13 3,355.53 5,671.75 6,021.42 11,693.17 345.01 0.00 630.38 0.00 848.18 0.00 2,930.30 0.00 4,753.87 0.00 4,753.87 Public Private Private Private Private Appendix 16. Transport Sector Investment Program 1383–1389/2004–2010 Appendix 16. Transport : Staff estimates. : Staff Capital Expenditure Capital Operation and Maintenance 64.45 3.98 Capacity BuildingCapacity 10.00 BuildingCapacity 0.00 7.80 3.20 Rural Roads AssistanceTechnical 2.79 7.50Manpower 0.00 AssistanceTechnical 0.00 5.63 15.00 0.00 0.76 0.00 3.00 AssistanceTechnical 0.00 22.50 1.51 0.69 0.00 0.00 1.12 0.00 Super CorridorNational HighwaysProvincial Roads 122.83Operation and Maintenance 0.00 148.66 53.24 0.00Airports 0.00 0.00 245.65 Air Transport 0.00 0.00 Operation and Maintenance 5.47 Fleet, Support Ser-Vehicle 5.55 vices, and Regulation 18.50 3.98 BuildingCapacity 30.37 12.95 563.54 0.00Operation and Maintenance 45.55 37.00 3.75 6.10 0.00 0.00 111.00 0.00 Operation and Maintenance 0.00 2.00 203.50 0.00 0.00 370.00 0.00 370.00 Dispatching andDispatching Receiving Stations BuildingCapacity AssistanceTechnical 40.00 1.00 2.00 0.00 0.00 0.00 1.00 0.00 Subprogram/Project Public Subprogram/Project Roads and Highways Civil Aviation and Tourism Aviation Civil and Traffic Road Transport Railways Total 471.98 585.67 824.11 894.83 1,178.61 1,221.25 3,657.53 3,419.55 6.132.24 6,121.30 12,253.54 Source

84 Securing Afghanistan’s Future: Transport Sector

2015

1394

2014

1393

2013

1392

2012

1391

2011

1390

2010

1389

2009

1388

2008

1387

0.00 27.75

0.00 168.00

0.00 89.25

93.00 0.00

162.00 0.00

479.53 392.34

2007

1386

1,008.00 0.00

2006

1385

2005

1384

9.38 18.75 28.13 37.50 93.75

4.30 8.60 12.90 17.20 43.00

6.33 12.65 18.98 63.25 25.30

0.00 0.00 0.00 1,742.53 903.13

11.63 11.63 15.50 38.75

11.95 23.90 35.85 47.80 119.50

25.74 25.74 34.32 85.80

12.33 12.33 16.44 41.10

20.43 40.85 61.28 81.70 204.25

19.40 38.80 38.80 58.20 232.80

19.38 38.75 38.75 58.13 232.50

31.68 63.35 63.35 95.03 380.10

2004

1383

445.98 445.98 594.64 1,345.20

122.83 245.65 298.03 420.85 1,369.15

601.31 255.65 776.51 2,828.02 3.782.48

870.27 347.54 1.022.61 3,495.33 4,873.03

934.72 429.13 1,139.66 3,692.73 4,873.03

2003

1382

1381

2002–

Badakhshan (2) Badakhshan

Badakhshan (1) Badakhshan

Takhar

Other Additional Additional Other Roads

Jabal Saraj–Nurestan network Saraj–Nurestan Jabal

Asadabad–Ghazni network Asadabad–Ghazni

Khulm–Eshkashem

North-South Highway 2 Highway North-South

North-South Highway 1 Highway North-South

East-West Highway East-West

Farah Road–Delaram Farah

Delaram–Kandahar

Andkhuoy–Aqina

Kabul–Torkham

Herat–Islam Qala Herat–Islam

Herat–Torghundi

Herat–Delaram–Zaranj

Naibabad–Mazar-e-Sharif–Andkhuoy–

Kabul–Kandahar–Spin Boldak Kabul–Kandahar–Spin

Sher Khan Bandar–Pol-e Khomri- Bandar–Pol-e Khan Sher

Provincial Roads Provincial

National Highways National

Super Corridors Super

International 0 4 5

Roads and Highways and Roads

Construction of Dispatching and Receiving Stations Receiving and Dispatching of Construction 0 5

No. of Milie buses per 1,000 urban population urban 1,000 per buses Milie of No. 0.059 0.151 0.300

Motor vehicles per 1,000 people 1,000 per vehicles Motor 13.71 26.71 40.00

No. of tourist sites opened sites tourist of No. 0 20 30

No. of airports functioning as per ICAO standard ICAO per as functioning airports of No. 0 20 30

Paved Roads (km per 1,000) per (km Roads Paved 0.15 0.23 0.46

Capital Expenditures (disbursement) Expenditures Capital

Subprogram 4: Railways 4: Subprogram

Subprogram 3: Road Transport Traffic Subprogram and 3: Transport Road

Subprogram 2: Civil Aviation Civil 2: Subprogram

Subprogram 1: Road Infrastructure Road 1: Subprogram

Appendix 17. Transport Sector Seven-Year Investment Program in Budget Format (Commitment) Format Budget in Program Investment Seven-Year Sector Transport 17. Appendix

Number

Fiscal Year Fiscal

Solar Year Solar

Investment Program ($ million) ($ Program Investment Target for Service Delivery Service for Target

Appendixes 85 12 1394 2015 11 1393 2014 10 1392 2013 9 1391 2012 8 2011 1390 7 1389 2010 6 1388 2009 5 1387 2008 4 1386 2007 3 1385 2006 2 1384 2005 (cont’d.) 1 7.836.121.087.02 7.832.93 6.12 10.441.71 8.161.62 1.086.15 7.023.96 2.93 1.443.06 9.369.99 1.71 3.904.05 1.62 6.15 26.10 2.286.00 3.96 2.16 20.40 3.06 8.20 9.99 5.28 4.05 4.08 13.32 3.60 23.40 6.00 5.40 9.75 8.00 5.70 5.99 5.40 5.00 20.50 6.08 13.20 6.53 10.20 33.30 13.50 5.99 5.00 20.00 6.08 7.98 6.53 6.66 8.105.25 8.705.81 5.25 19.95 5.81 16.65 7.00 20.25 7.74 21.75 17.50 19.35 1383 2004 11.63 11.63 15.50 38.75 10.9810.67 10.98 14.64 10.67 14.2223.4514.1812.42 36.60 18.0517.78 23.4516.74 31.2618.05 14.18 35.55 17.55 12.42 18.9016.20 18.05 16.56 17.78 24.06 16.74 23.70 18.05 22.32 17.55 24.0614.63 16.20 23.4020.66 78.15 21.6021.2919.05 47.25 12.56 41.40 10.80 14.63 33.75 20.66 59.25 19.50 21.29 55.80 27.5413.50 19.05 60.15 28.38 12.56 58.50 22.50 25.40 10.80 54.00 16.7410.00 14.40 10.00 13.50 10.00 18.00 22.50 48.75 68.85 40.00 30.00 70.95 63.50 41.85 36.00 45.00 40.00 75.00 1382 2003 03 1381 2002– Konduz Baghlan (1) Baghlan (2) Bamian Konar (1) Konar (2) Nangarhar Laghman Lowgar (1) Lowgar (2) Kapisa Kabul Parvan Vardak Herat (1) Herat (2) Nuristan Jowzjan Paktia Helmand Balkh Paktika (1) Paktika (2) Oruzgan Faryab Nimruz (1) Nimruz (2) Sar-e Pol Samangan Ghazni Kandahar (1) Kandahar (2) Zabol Badghis (1) Badghis (2) Khowst Farah Ghowr Rural Roads Capacity Building Appendix 17. Transport Sector Seven-Year Investment Program in Budget Format (Commitment) Sector Seven-Year Appendix 17. Transport Solar Year Fiscal Year Number

86 Securing Afghanistan’s Future: Transport Sector 12 1394 2015 11 1393 2014 10 1392 2013 9 1391 2012 8 2011 1390 7 0.00 1389 2010 6 1388 2009 5 1387 2008 4 5.00 74.10 97.68 20.63 1386 2007 197.40 3 1385 2006 2 1384 2005 (cont’d.) 1 5.55 12.606.407.80 19.80 9.60 11.20 88.05 12.80 23.606.10 35.20 53.40 9.94 14.182.00 37.10 3.005.60 4.003.41 53.40 3.00 6.00 37.10 8.68 4.19 6.00 3.00 8.68 4.19 3.00 1383 2004 88.0555.50 12.60 130.8027.00 324.55 111.0036.46 213.5030.37 55.49 45.55 74.91 60.73 204.11 1,000.00 33.00 167.01 1,000.00 28.2616.24 0.00 0.00 37.10 44.0564.45 81.59 28.18 117.04 44.05 28.18 102.25 33.40 167.20 413.15 1,053.40 102.00100.00 3.00 4.00 6.00 0.00 6.00 0.00 1382 2003 03 1381 2002– Airport Air Transport and Other Facilities Training Civil Aviation Capacity Building and Receiving Stations Dispatching Capacity Building Tourism Fleet, Support Services, and Regulation Vehicle Capacity Building Staff estimates. Staff Unit Cost Potential User Fee (based on international experience) Civil Aviation and Tourism Aviation Civil and Traffic Road Transport Railways and Traffic Road Transport Railways Roads and HighwaysCivil Aviation and TrafficRoad Transport Railways 53.24 3.75 56.78 5.63 63.86 7.50 5.47 15.19 40.69 2.00 4.00 5.00 Roads and Highways Civil Aviation Appendix 17. Transport Sector Seven-Year Investment Program in Budget Format (Commitment) Sector Seven-Year Appendix 17. Transport Potential Cost Recovery ($ per XXX) Recurrent Costs ($ million) Recurrent Costs Technical Assistance Technical Source: Solar Year Fiscal Year Number Operations and Maintenance

Appendixes 87