International Forum for Rural Transport and Development (IFRTD)

TRANSPORT SAFETY IN

Assessing Major Transport Safety Problems in the rural areas of the High Plateaux of Madagascar Case Study:

1. General context (Executive summary)

The mobility of a population can be seen as both a factor and an indicator of development. The easier people of a given region or commune move around, the easier they pick up public service jobs especially contracts, the more they feel the drive to work and educate themselves and the better their health situation.

Consequently, any obstacle to population mobility particularly in the rural areas where there exist very few opportunities could retard the development of that region.

This study focuses on a vital aspect of the movement of goods and people which is transport safety. Poor safety and the very high risk involved in moving from one place to another are a serious deterrent to people who intend to move around. There are two major forms of risk: accidents and attacks.

2. Introduction

Madagascar has long been among the ten poorest countries in the world. During the past few years and thanks to enormous efforts, the country has gradually been working its way out of the poverty zone and is now close to the third position. With a surface area of 590,000 km2, the “Great Island” has a population of about 16 million inhabitants with only 10000 kilometres of roads and paths that are permanently impassable. This can be explained by two major factors: - Vast areas of the country are still inaccessible and do not offer enough safety of persons. The authorities cannot easily move around when there is an incident or an attack and there are many no-go areas. - Most of the transportation of farm produce for the market and foodstuff for local consumption has to be done on foot over long distances on old and poorly maintained paths.

During the past five years, the State of Malagasy, with support from donor agencies and development partners, has made remarkable efforts to rebuild its road network. Such a vital policy to rehabilitate road infrastructure helps to gradually renew human and economic activities and to ensure greater safety in the country in general. However, because the country is very large and lacking in road infrastructure, farmers in the rural areas still find a lot difficulties to transport their goods to big markets where they can have good prices for their 1 commodities. The greater part of these farm products is transported on the back (quite often by women on their head), on zebu-driven carts, in boats or on bicycles to local markets. From here, the products are transported on motorbikes, in vans or off-road pick-ups to big district markets where buyers from town come with their trucks. With the current state of the roads the whole country begins to face serious safety problems. For so long the local road network was abandoned because all roads led to the villages or to the chief towns of communes that were themselves inaccessible. Now that the major highways, national and provincial highways are gradually being reconstructed, it is important economically to rehabilitate those secondary roads. Rehabilitation is also important socially, because the local network facilitates access to hospitals and schools. The movement of persons and goods constitute a renewed takeoff of activities that contribute to the development of several regions that have remained inaccessible for long such as the area under study where 10 communes out of 15 cannot easily be reached by any road for whole year.1 Soavinandriana District situated in the interior of High Lands of Madagascar, may be said to be the province in miniature. It is situated 140km to the south west of the capital in a mainly agricultural region.

This region, like most of the country, is barely beginning to move out of a subsistence economy characterised mainly by food crop production to solve the basic needs of the local population through trade by batter and to achieve self-sufficiency, into a market economy based on larger scale and more diversified production where there will be surplus for sale. There is already a high seasonal production of rice, potatoes, maize, tomatoes, pawpaw and fish from the lake. There are also cash crops like tobacco and coffee. Production is mainly carried out by family members of a piece of land usually not bigger than a hectare. Some larger and more organised farms with their own means of transport are beginning to come up.

Although some enthusiasm actually reigns in the villages, news problems are coming up among which is the issue of safety of highway. Everybody agrees on the fact that the reopening of roads has brought many changes, but few donor agencies or partners have ever thought of the negative impacts. This study is, therefore, an overview of the people’s perception of safety relating to travel within the rural milieu.

Overview of the transport sector

There is an on-going institutional reform of the transport sector in Madagascar. The structure that was inherited from the colonial and socialist epochs is no longer adapted to the current changes and needs, therefore, to be reviewed. The underlying principle is to break up the transport sector into various branches: Maritime transport, Rail transport, Air transport and Land transport, each placed under an autonomous body. Each body shall be given great autonomy and may receive financial support from various donor agencies. Technical assistants are currently being recruited to strengthen the staff of the Ministry. Within this framework, the Department of Transport Safety is carrying out a thorough revision of the Highway Code and of the statutes and regulations for driving schools. The conditions for obtaining driving licences shall equally be revised. It is a secret to no one that there are fake driving licences in circulation. Moreover, the changes in the type of vehicles require new measures. Many human-driven vehicles (rickshaws, kalesy) or animal-driven vehicles (picking carts, etc) are still plying the road in the villages and even in town. The number of motor scooters, bicycles and small motorbikes is on the rise and larger and larger trucks are also on the road. The roads state of the roads is gradually improving and drivers tend to drive faster than before. Some of them are inexperienced and, therefore, not competent enough to handle their vehicles. The Highway Code must, therefore be revised completely taking into account all theses factors the problems caused by interferences between the different means of transport.

1 Monogrph of Soavinandriana District (Nov. 2006) 2

ANTANANARIVO TRAFFIC ACCIDENT STATISTICS 2004 2005 Bodily Injury 869 1423 Deadly 43 60 Material damage 118 149 Mixed (*) 17 129 Drunk driving 195 191 Hit-and-run 505 503 (*) Mixed: Material damage +Bodily Injury and/or Deadly Source: Department of traffic accidents – Central Police Station

A project funded by the French Cooperation Mission provided computer equipment and training to senior workers of the Ministry, the Gendarmerie and the Police for the collection and treatment of data relating to bodily injury, on a monthly bases. This system that was put in place in June 2005, is still in its experimental phase. We can conclude by saying that the process is on the right track and needs just time.

3. Methodology The choice of Soavinandriana District is very important for this study because it has almost all the means of rural transport found in the country. In fact, a major highway (the RN1) with the recently paved RN43 stretch links it to the Capital. There, therefore, is regular road network that enables daily transportation between the headquarters of the district and the main market in the Capital city.

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Various types of vehicles are involved in the transportation of both manufactured goods and agricultural produce in and out of the district.

Engine-Driven Not Engine-Driven Trucks Boats Vans Carts Pick-ups Bicycles Farm vehicles Rickshaws Fifth-wheel tractors Kalesy Motorbikes

Communes Distance from commune headquarters(km) Ampefy 8 NORTH ZONE Ampary 8 Ankaranana 22 Masindray 18 SOUTH Amparibohitra 14 ZONE Amparaky 32 Soavinandriana District headquarters EAST ZONE Dondona 21 Antanetibe 72 Ankisabe 54 Ambatoasana centre 45 Tamponala 72 WEST ZONE Mahavelona 36 Amberomanga 35 12

This study attempts to analyse transport safety problems as a whole. At the local level, elected officials, government officials at various levels, Gendarmerie and district health officials were interviewed separately. Top officials in the Ministry of Transport2 also accepted to contribute to the analysis of the situation. Their shared views and opinions appear as a watermark in the comments.

2 Mr Rakotoarison Pierre: Head of Service for Road Safety in the Ministry of Transport and Mrs Rabakoarisoa Olga: Regulations Officer, Department of Transport 4 Fieldwork was carried out for 4 months between December 9, 2006 and January 6, 2007. Respondents came from 12 communes of Soavinandriana District. Interviews were conducted at 7 different spots and on different dates over a period of 11 days. . Those interview responded freely and anonymously. The study made use of two main questionnaires designed to collect information on the respondent’s profile, the cause of their movement, the means of transport mostly used and above all, the fears travellers have and a recount of incidents that occurred. They helped to sample the opinion of 140 people: 86 travellers and 54 carriers. Travellers were divided into three categories depending on their distance they usually cover. A special questionnaire was used for professionals of the transport sector who provided specific information.

We admit a certain bias concerning the fact that the study was conducted in the rainy season (December- April) when transport becomes difficult, but judging from the topic, this bias can be said to be positive.

General Profile of our respondents grouped according to sex, level of education and activity Distance M W M W Chil. Activity Others* 5km (1h) 34 50% 50% Respondents 86 60% 40% Farming 66% Carter <20km (2 à 4h) 41 66% 34% Average age 40 42 35 Schooling 8% Breeder Household >20km (1/2 j) 11 73% 27% size 5 32% 28% 40% Trading 7% Builder Nursery 86 Pr. Sec. Hig. Fishing 6% Farmer Level of Religious Communes 12 Education 29% 53% 18% Others* 13% personality

4. Findings and Analysis

We noted first of all that when distances are short men and women travel the same, but when they become longer, women travel less. This is confirmed by the global results obtained from our respondents: 40% for women against 60 for men. The figures are the same within households. There is total imbalance with respect to carriers who are all men no matter the means of transport. Carriers M W Respondents 54 100% 0% Average age 39 39

The occupational distribution of respondents is similar to national distribution: peasants, fishermen and breeders constituted about 75% as against 25% for other activities.

4.1/ Trip purpose

To understand the issues relating to the movement of persons, we thought it necessary to find out what causes people to want to move. Reason 1h 2-4h 1/2day Others* Market 5 31 7 50% Hospital School 1 1 0 2% Church Shop 14 2 1 20% Outing Agriculture 5 3 0 9% Fishing 5 0 0 6% Offices 0 2 3 6% Others* 4 2 0 7% It is abundantly clear that the movement to sell agricultural commodity and to purchase basic commodities constitute the main reason for travelling, irrespective of the distance. It is also noticed that most markets

5 are located some 2 to 4 hours’ walk, that is, 10 to 20 km from production centres, which constitute a serious risk of accidents on the bad roads and of loss of goods and liquid cash or of attacks.

4.2/ Transportation mix in use

Our findings show that a vast majority (69%) of the population of the study area travel on foot or on bicycle. Revenue transportation represents just 31% about more than half (17%)of which is motor transport. This is not surprising given that only the 312 roads in use only 80(26%) are paved or gravel- filled.3

Most agricultural produce is transported removed the farm to the villages packed in baskets (sobika) of 10 to 20 kg or bags (gony) of 20 to 30kg and transported on the head by the women to local markets often over long distances (20 to 25 Mode of travel 1h 2-4h 1/2d km). Market 22 17 2 48% From there, petit traders, all men, buy the limited stock which Bicycle 5 10 3 21% they assemble and transport to Soavinandriana District market in Boat 5 3 0 9% Zebu-driven carts (of 400 to 600kg depending on the state of the Cart 1 2 1 5% road and the season) and often in convoys so as to assist one Motorbike 2 1 3% another in case of difficulty and to reduce the risk of being Farm taxi 6 2 9% attacked in the night. During rice harvest sometimes in April, it is Tractor 1 1 2 5% possible to see long convoys of carts hired by producers to breeders who during the season become carriers. Some have to combine trekking, the cart and the boat (200kg) to cross the lake and meet the paved road where the caleche, a sort of flat cart with small wheels, is waiting to take them to the market. Bicycles are beginning to be used increasingly. With the bicycle, a person (85% of men) can transport the same quantity as on foot and even more, over a distance two times longer than on foot. Only very few people currently use the motorbike and these are often active or retired rural development project officers who own them either as service vehicles or vehicles sold to them at the end of a project. Besides these individual means of transport, there exist other means of public transport sometimes organised in cooperatives especially on some relatively well-maintained roads or roads that are at least passable seasonally. The most widely used is the farm taxi which is generally a van fitted with seats for 25 passengers. It can also be a 15-seater minibus or a familial 504 with 9 seats. Finally, in some areas, it could be an off-road track-vehicle, a pick-up or even a fifth-wheel tractor. The rule is that each passenger has to pay a seat plus an additional amount that varies depending on the volume and weight of the luggage. Exaggerated overloading and lack of comfort in these farm taxis are often said to be what discourage passengers. But, it is the state of vehicle and the fear of a breakdown that is more disturbing because can lead serious delays and the destruction or loss of goods.

4.3/ Movement frequency

92% of the people interviewed travel at least once a week, which does not hold true for everybody because those interviewed were either travellers of carriers. Most of them travel only once a week to weekly markets.

3 Appendix 2: Road Infrastructure, Monograph of the District (Nov. 2006) 6

Movement Frequency 1h 2-4h 1/2d

Everyday 16 3 22%

3 times a week. 1 2 3%

2 times a week 3 4 1 9% 1 time a week 12 31 6 57% 2 times a month 1 1 3 6% 1 time a month 1 1 2%

Following their comments, some travellers think there is a direct link between poor transport safety and the frequency of movements. It is seemingly true that some people would travel more often when the roads were better and more secure. 4.4/ Fears and likely incidents

It is important to distinguish between motor transportation, where risk increases with speed, be it the speed of the vehicle or the relative speed with respect to the other users, and the strictly human type: on foot, on bicycle or by boat. Motor transportation

Discussion with government officials:

It came out clearly that very few accidents or incidents are recorded both at the level of decentralised State services and at the National level. This could mean two things: First, there are really few serious problems relating to transport safety. Second, data collection and transmission systems in Madagascar are still very much in their infant stage.. In other words statistics give little precise information, which does not mean that all is good. Most of the incidents or accidents recounted either happened too far off in the hinterland for the injured to be transported to the district hospital or were not so serious as to be referred to the police or the gendarmerie.

In fact, the roads as well as the vehicles are so few that there is always easy traffic and most of the drivers are careful and do, for the moment, respect speed limits of 40 km/h in large settlements.

The gendarmerie pointed out some cases of recklessness and drunk driving, but the number of incidents having caused personal injury (deaths or injuries) in 2005 and 2006 in the district was just 3 or 4 a year. The hospital without a surgical block confirmed two on-the-spot deaths within two years and as few as 20 cases of emergency evacuations (appendix). It can, therefore, be said that generally, the risk of road accidents is still low in the district. The population does not yet see it as something likely to disrupt or limit movements. There is rather the fear of breakdowns because the vehicles are too old and overloaded or the fear of bad weather which, given the state of the roads, often render movement difficult. Many road users admitted the fact that pickpockets operate inside farm taxis on the way back from the market when people are dosing.

7 Non-mechanical transport

Interviewed about the risks involved in this form of transport, most of our respondents described them as minor. Reports from the gendarmerie made mention of few road accidents and attacks within the past two years. Of course, not all incidents are immediately reported to the authorities, but the mayors or municipal councillors interviewed on this subject said they too did not feel the risks were high or many and confirmed the fact that incidents were few and far between. For most respondents the major concern at the moment is not safety but inadequate infrastructure and insufficient means of transport.

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Incidents 1h 2-4h 1/2d Fears 1h 2-4h 1/2d None 21 19 5 52% None 12 10 1 27%

Accident 6 9 2 44% Fall 6 5 2 15% Theft 5 6 2 33% Attacks 2 5 2 10% Attacks 2 5 0 18% Bad Weather 15 19 8 49% Others 1 4 2 18% Lack of money 8 3 13% 14 24 6 Others 4 6 2 14%

Fears: If 73% admit limiting their movement for fear of anything, it is quite often due to bad weather that renders the roads slippery and movement by boat dangerous. People who travel only short distances (1h) claim not run any risk in the dry season. Bad weather, which is by far the major cause of fear, makes transportation more dangerous and can also damage manufactured goods (salt, sugar, cigarettes, soap, etc). It therefore presents a major risk for goods.

Incidents: Apart being afraid, 48% of the people admitted having been victims of road accidents within the past 5 years. Most of the accidents happened during the rainy season and had to do with falling while on foot or on a bicycle because of the state of the paths which almost everybody complains about. The few fatal accidents are by drowning when a boat is overturned by the wind grew on the lake or when people crossing an overflowing are swept by water. It is reported that many villagers remain cut off for several weeks during the rainy season. Patients can only be transported in carts or on people’s backs. The fear of attacks was mostly expressed by women and this was confirmed by the 9% of cases recounted. It seemed that attacks were mostly on traders returning from the market with huge sums money and women and the men who are drunk are most easily attacked. The bandits know these people carry along at times huge amounts of money because there are few banks in the area. Goods are, however, hardly ever stolen. Bike riders face the same problems as the pedestrians: risk of falling on slippery and poorly maintained roads, which is made worse by speed. We were informed about several cases of fractures. Only transportation by boat seem to pose a major risk capable discouraging carriers and travellers. The boats used are carved out tree trunks which do not guarantee any safety. It may take more than two hours to cross the lake; it all depends on the point of start off, the loading taken in and the weather condition (foul wind, surge) And in the meantime conditions may change. The Mayor of Ampefy indicated that at least one a accident a year resulted in deaths by drowning, yet there is no project to regulate the sector. In the course of the study we also learned of a boat accident that occurred several years ago killing 11 people after a passenger suffered an epileptic feat. Passengers sometimes limit their movements for fear of losing not only their lives but also their goods. There has not any alternative means for the transportation by boat whereas the sector seems to be expanding. There is no refuge Island in the lake, no means to around it and no engine-propelled rescue boat. We were told by some passengers that of late some gendarmes who were investigating one of these accidents locked up a fisherman, who apparently tried to rescue the passengers of an overturned boat but could not save everyone, for failing to save someone in danger whereas he had been struggling to rescue them. Since then, nobody comes around when a boat is overturned…

4.5/ Carriers’ view point

We thought it worthwhile to have separate interviews with professionals of the transport sector.

Their level of education is the secondary school, that Pr. Sec. High. is, a little higher than the national and their average Level of Education 31% 61% 7% age is 39 years. No woman performs this activity. Mini Maxi Av. Distance per trip 5 280 88 The average distance covered per trip is 88 km and varies greatly depending on the means of transport used. 9 Given the importance and proximity of Lake Means of Frequency Itasy, a majority of carriers interviewed were Transport boat riders. 59% of those interviewed use the More than once a Boat 28% 6% mechanical means. day Farm taxi 17% Once a day 39% The majority (76%) travel more than once a Truck 17% 3 times a week 31% week. Only those occasional boatmen who are in Motorbike 11% 1 time a week 20% fact fishermen do carry out transportation Cart 7% 2 times a month 2% (informally) on market days at the request of Pick-up 4x4 6% 1 time a month 2% travellers. Van 4%

Rickshaw 4% Tractor 4% Others 4% Fears Incidents None 24% None 19%

Accident 38% Accident 27% Attacks 8% Theft 10% Bad weather 41% Breakdown 57% State of vehicle 3% Attacks 4% Fatigue 7% Others 1% Others 3%

The fears were expressed in relation to the mode of transport used and specific studies would be useful getting into the roots of the problem. The most frequently expressed are bad weather, particularly the sudden winds on the lake that usually cause fatal accidents. Rain causes the roads to be slippery, thereby slowing down movements and causing accidents. Carters also admit that the mud in the rainy season does not make things any easier for the zebus. They run the risk of sustaining fractures or falling sick, talk less of facing the severe winter when temperatures drop to below 10degrees, sometimes to 0 in the high plateaux. The incidents mentioned above recounted by 81% of carriers interviewed relate to breakdowns, generally due to the state of the cars used. For example there are still The Peugeot 203 break or the 1000kg Renault serving the very remote localities. Some cases of attacks and theft targeting returning market people also registered almost every night. Night journey Never 17%

Rarely 74%

Often 9%

5. Conclusion and Recommendations: This study focused on the people’s perception of safety concerns in the transport sector. This reflects the reality in place though it may appear different to an outsider. At the current stage of the District’s development, the main problem faced by the people in the transport sector seem not to be safety, but inadequate infrastructure and transport means. When one talks safety, the focus is generally on improving the road network, even unpaved rods, in order to reduce time wastage during travels and the risk of breakdowns. It is the same problem for the poorest group in the community who go about on foot or on bicycles and need to have their paths improved. Only transportation by boat for the meantime offer real challenges to human life and property, and is slowing down movements particularly in the rainy season. Some measures should be taken by Government to regulate and professionalize this form of transport and thus curb serious accidents.

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