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National
Transport Policy
Contents
Chartered Institute of Transport Pakistan is a professional body of transporters with a membership of over 900. The Institute has been rendering yeomen but a silent service for the cause of transport during the last 20 years. Because of the profound knowledge and rational views of CIT organizations at international level, the Institute has an advisory role on transport issues to governments and legislatures. Similar offer by CIT Pakistan in the past was not reciprocated. It is a happy augury that the present government has realized the importance of CIT Pakistan as an advisory body. In June 1998 the Ministry of Communication has given a mandate to CIT Pakistan to draft a National Integrated Transport Policy. It is coincidental that CIT had already undertaken this task in 1997 as part of service to the national transport sector. After receipt of the mandate from the Government, the earlier draft has been updated and modified. All the five modes of transport (Road, Rail, Maritime, Aviation and Multimodal) have been considered on a standard pattern of "Current Status" and "Policy Guidelines and Recommendations. The current status provides a back-ground information whereas the second part incorporates a comprehensive material for drafting an Integrated Transport Policy for Pakistan. In spite of the importance and role of transport for economic progress of any country such a policy has not been evolved so far. We hope that this effort of CIT will result in enunciation of the National Transport Policy without further delay. The following members of CIT with an intimate knowledge of various modes of transport have contributed their precious time and effort in compiling this policy paper: a)
Road Transport b) Rail Transport c) Maritime d) Aviation e) Multimodal
Transport Engr. Zaheer Mirza, FCIT as a senior consultant of Pakistan and Fellow of the Institute has also offered valuable advice. I would like to thank all the above members and congratulate them on their commendable effort in drafting this policy. Chairman CIT Pakistan 1.
A strong economy is the major objective of any government.
Good communications and efficient transport systems is a necessary
prerequisite for a strong economy. Therefore, importance and role of
transport for economic progress of Pakistan can not be over
emphasized. Development of an Integrated Transport System can take
place only within the frame work of a clearly formulated National
Transport Policy. In spite of this, a coherent and Integrated
Transport Policy has not been finalized so far. Consequently
transport sector has not found its due importance and priority in
our Five Year Plans. 2.
Apart from the importance of transport for national
development and economic progress of a country, movement of people
and goods in the modern world has become a highly specialized
subject. This trend of improvement in establishment, operation and
maintenance of transport infrastructure will continue during the new
Millennium. It is therefore necessary that a clearly laid out
national policy should be enunciated by the government as early as
possible so that Pakistan enters the 21st Century with a clear cut
perception of its role in the development of the national economy. 3.
In the absence of a transport policy, the progress of
transport during the last 50 years has been erratic and unbalanced.
Nevertheless it is a credit to the managers of various modes of
transport in Pakistan that the country has made a significant
economic progress. With a clearly enunciated transport policy,
Pakistan has the potential to accelerate the pace of progress and
make up for the lost time. 4.
While framing the National Transport Policy the following
elements have been kept in mind: 5.
The principal aim of this National Integrated Transport
Policy is to provide Pakistan with the framework for building a
modern integrated transport system, which will assist the nation’s
march towards progress and prosperity in the twenty-first century.
This policy document provides guidelines, which if implemented,
would ensure that Pakistan will have a network of integrated
transport system and an improved functioning of the distribution
logistics chain. 6.
Like all other spheres of human activities, National
Transport Policy is not a Magna Carta. It has to be modified,
adjusted and brought up to date from time to tithe. It is therefore
recommended that National Transport Policy should under-go periodic
review and necessary modifications and improvements made. 7.
It may be added that National Transport Policy laid down by
the Government of Pakistan has to be given a practical shape and
implemented as a part of the National Development Plan flamed on a
Five Yearly basis. The implementing agencies may be either at the
governmental level (Federal, Provincial or Local Bodies) or under
the private sector. In the context of the present international
trend towards privatization and deregulation, bulk of the
implementation for different modes of transport will have to be
under-taken by the private sector. 8.
It is imperative that an integrated transport policy must be
evolved. Otherwise disintegration of individual modes may ensue. 9.
The policy for different modes of transport has been
enunciated under the following heads: 1.
All modes of transport have a role to play in movement of men
and material. A common transport policy applicable to all modes is
to move people and goods efficiently, economically and safely in an
environmentally sustainable framework. 2.
Development of all modes of transport should be under a fair
and impartial regime. Individual modes should not receive any
preferential treatment. 3.
The implementation of the policy should recognize and
preserve inherent advantages of each mode. Further it should be
guided by market forces and ensure fair wages as well as equitable
working conditions. 4.
The objective of the Integrated Transport Policy should be to
meet the commercial needs of Pakistan, and encourage tourism. The
dictates of national defense and emergencies should also be kept in
mind. 5.
Transport as a whole be declared an “Industry”
imbibed with all the freedoms and privileges which accrue to an
industry. 6.
Transport should be placed under one ministry to ensure a
coordinated and cost effective development of all the modes
according to their inherent advantages and disadvantages. Ministry
of Transport should have a simple and functional organization. 7.
In the past transport infrastructure has been the sole
responsible of public sector. Under the revised policy, private
sector also should play its part in infrastructure development. 8.
Under the new transport policy, public sector elements of
transport industry should be competitive. Hence they should not be
subjected to Red Tape and Governmental interference but should be
given full commercial freedom. 9.
With the emphasis on privatization and deregulation in the
transport sector, all existing laws (Acts / Ordinances) under which
different modes of transport are operating have to be reviewed and
modified. This is a very important task which has to be under-taken
by the Transport Ministry. 10.
Safety is an important element of all modes of transport. It
is therefore essential that a ~ingle Safety Board under the Ministry
of Transport should be established to ensure a coordinated approach
and achieve economy. 11.
Without financial provision, transport policy cannot be
implemented. It is therefore imperative that adequate financial
allocation must be made for each mode by the public or private
sector. Financing of transport infrastructure may have to be made on
a BOT, BOO or BOOT basis. Roads
and Road Transport
go back Current Status 1.
Roads and Road Transport are a vital element of the transport
sector and cover the following: 2.
Roads and Road Transport are on Concurrent List of
Pakistan’s constitution and are being coordinated by the Ministry
of Communications at the Federal Level and the respective Provincial
Governments for Provinces. 3.
Current state of Road Sector in Pakistan is as under: a)
The existing road net-work is only 145,000 kms which gives a
density of 0.18 km per square km of the area as compared to 0.5 kms
/ sq.km which is considered as the bare minimum for sustaining the
economic development of a country. b)
The major deficiency is in case of rural/farm-to-market
roads. c)
The existing physical state of primary and secondary road
network is far below the acceptable standards due to lack of proper
quality control for construction and maintenance. d)
A major problem is the extent of encroachments both on urban
as well as intercity roads. e)
Another serious problem is of truck over-loading which is
resulting in heavy damage to roads. f)
The following deficiencies are creating increasing traffic
congestion, accidents and environmental problems:
I. High level of motor vehicle growth 4.
Current status of highways and motorways is as under: 5.
The Road Transport Corporations working under the respective
Provincial Governments have been abolished and a new pattern for
Road Passenger Transport has not yet emerged. 6.
Urban Transport System in Pakistan is the most disorganized.
Although, Pakistan has many urban areas of over a million population
and Karachi is one of the mega cities of the world, no Mass Transit
System exists in the country in spite of the fact that a National
Mass Transit Authority was established about 3 years back. Policy
Guidelines 7.
Roads and Highways a)
Roads of Pakistan should be classified as follows:-
I.
National Highways and Motorways b)
Maintenance and up-keep of the roads must be ensured with a
planned program c)
Responsibility for construction and maintenance of the roads
should be as under d)
Road Maintenance Fund should be established e)
Because of the limitation of financial resources, priorities
for construction and development of roads should be clearly spelt
out and adhered to. f)
Privatization of Road Maintenance should be resorted to under
a phased programme g)
Toll Ways should be established on selected highways h)
56,000 kms of canal roads should be opened to the public. i)
All village/farm-to-market roads, in the first instance be
constructed as gravel roads as per specifications developed by the
National Transport Research Centre (NTRC) which costs only 1/8th Of
a comparable black top road but provide equally dependable
all-weather connection. Their improvement to higher specification
may be undertaken by stages. 8.
Road Network and Land Use
Transport and land use have a direct and intimate link. The
following policy measures should be incorporated: 9.
Other essential policy measures are as under: a)
Highways must be built to international standards and
material used in toad construction must be of high quality
standards. b)
Quality control must be entrusted to qualified consultants. c)
Land selection for highway alignment must be done after a
thorough investigation and analysis to ensure that road will not
collapse due to soil condition etc. d)
Poor drainage plays a major mole in causing road damage
Proper drainage should be provided by correct designing and ensuring
suitable curvature on road surface. e)
Drainage ditches must be designed to accommodate the expected
rainfall to prevent structural damage to the road. f)
All roads must be constructed at a suitable height above the
ground level in order to avoid stagnant water. g)
All roads must be properly compacted, pressed and tested
before handing over for heavy traffic. h)
Safety fences and barriers should be designed to absorb
impact with as little risk of injury to vehicle occupants as
possible. i)
Great care should be taken in the positioning of road side
features, which may either obstruct visibility, lead to accidents or
increase accident severity. j)
Adequate visibility at intersections is crucial to road
safety. k)
Dual carriage-ways for heavy load traffic from Karachi
to Peshawar and bypass roads in and around the small and big towns
situated on the main highways must be provided. 10.
Road Transport: j)
The most critical problem facing the inter-city road
transport, both passenger and goods, is safety. The rate of road
accidents is still very high as compared to the developed countries.
The root cause of accidents is the road-user and other factors such
as quality of roads and vehicle fitness etc. have only marginal
effect. Control of the road-user can only be ensured through
education and enforcement. Strict enforcement of the National
Highway Safety Ordinance 1997 should be ensured. This Ordinance may
be modified by the Provinces if necessary. k)
Heavy Goods Vehicles - Operation of heavy road
vehicles should be carefully controlled. Enforcement of regulations
and traffic management should be used to minimize their danger in
sensitive locations such as residential areas. Control imposed under
Ordinance No. L-IlI of 1997 to restrict axle weights should be
strictly enforced so that roads are not damaged. 11.
Road Safety: a)
Start road safety education in schools and the media. b)
Instructor Training schools need to be set-up to train the
persons engaged in driver’s training. c)
The cadre of traffic police up to Deputy Inspector General
level in each province must be separated and given extensive
training in traffic management, safe driving, traffic laws and
accident investigation to ensure development of the required level
of professionalism. d)
Speed limits prescribed in the Fifth Schedule of National
Highway Safety Ordinance 1997 must be enforced. e)
Comprehensive revision of traffic laws to bring them at par
with international standards especially with regard to driver
testing and adjudication processes must be taken up on top priority
basis. f)
Draft Road Safety Act which updates the Motor Vehicles
Ordinance 1979 should be finalized and promulgated at an early date. 12. Automobile industry has a major
role in the road sector and should adopt fallowing measures: a)
Increase productivity by gradually modernizing equipment,
mechanized operation and improve labour management. b)
The trucking industry is operating with 9 ton Bedford truck
as its main stock. The vehicle is very expensive to operate as it is
too small, fuel in-efficient and under powered to be economically
used for long-haul. These problems are exasperated by overloading to
dangerous level resulting in very high axle loads. This has serious
repercussion on deterioration of roads and the vehicle itself.
Lately bigger trucks and trailers have been introduced but rate of
induction is very slow. There is urgent need to encourage use of
bigger trucks and trailers to reduce the transportation costs and
minimize the damage to road system. c)
Freight carrying vehicles should be standardized and their
progressive manufacture in the country should be arranged on a
planned basis. d)
To ensure standardization, Passenger carrying vehicles of the
following four sizes should be manufactured in Pakistan a)
Authority for Design Approval of Trailers and Vehicles being
manufactured in the country should be established. Urban
Transport 13.
Urban Transport Policy for Pakistan should have the following
objectives: a)
Maximizing the use of existing road space. b)
Improving the performance by implementing Mass Transit
Systems wherever warranted. c)
Minimize the overall cost of public transport. d)
Provide quality of service that users can afford. e)
Minimize accidents and harmful effects of pollution. f)
Improve the bus system. g)
Build a transit way network in selected corridors as per
adopted priorities and opportunities for financing, depending upon
travel demand trends relative to capacity requirements and the
performance of the system. 14.
The following policy guidelines are laid down for
implementation of urban transport policy: a)
All cities with a population of 100,000 should have an urban
transport system. b)
All Metropolitan areas with a population of one million and
above should have a mass transit system. c)
Metropolitan areas with a population of five million and
above should have the bus system complemented by light rail/bus
ways. d)
Development of an Urban Transport Master Plan for all urban
areas vide a), b) and c) above should be made mandatory. e)
As urban transport has to be mainly bus based, present bus
system should be improved and a bus passenger ratio of 1x1000 (mini
bus / midi bus / large buses) should be used for planning purposes. f)
All Urban Transport should be operated by private sector with
close support and coordination of official agencies. g)
Infrastructure (bus depots, bus terminal and bus stops)
should be developed by public sector and leased to private sector
companies operating the buses. Infrastructure of KTC, SRTC, PUTC,
PRTB and GTS should not be disposed off but leased to private sector
operators. Ii)
Rail based urban transport in Metropolitan areas should be on
a BOT / BOO basis. i)
Double Decker buses should be introduced in cities with Mass
Transit Systems. As technology and facilities for manufacturer of
double Decker buses is available in Pakistan, these buses should be
progressively introduced in all urban areas with a Mass Transit
System. j)
It should be mandatory to reserve land for urban transport
infrastructure in the newly developed urban areas of Pakistan. k)
Road Passenger Transport should be a Provincial Subject l)
The following guidelines should be given to the Provinces: 15.
The following additional recommendations should be
incorporated in the Urban Transport a)
Institutional development through creation of Metropolitan
Transport Agencies in major cities. b)
Development of a Transport Information Management System to
act as a monitoring agency. c)
Environmental Impact Study should be made mandatory for all
major transport infrastructure. d)
As buses will continue to be the main mode of passenger
transport, bus priority measures should be incorporated in the Urban
Transport System. e)
Incentives should be offered to local industry for
manufacture of low cost, high capacity buses for urban areas; f) Establishment of intercity bus terminals in
cities of over 1 million should be made mandatory. Current
Status 1.
Pakistan Railways (PR) are the life line of the country
catering to all its needs for large scale movements of freight as
well as passenger traffic, thereby contributing to economic growth
and promoting national integration. Railway’s in any country has a
defined role and the status is determined by classifying it either
as a public utility service or a commercial organization.
Railway’s is ideally suited for countries like Pakistan where
distances are great and the land is linked to the sea port in the
southern edge of the country. The basic objective of Pakistan
Railways is to transport men and material. There are, however,
certain sections of Railways which, though uneconomical, are being
operated for strategic reasons or because of the absence of
alternate means of transport as public service. Thus Railways in
Pakistan is also a public utility service. 2.
Up to the sixties, the governments were clear that
railway’s was the most cost-effective mode of long-distance
transportation. Passenger trains as well as freight services were
running with profit as a result of adequate investment. Subsequent
decrease in investment, however, contributed to the over-aging of
railway assets resulting in deteriorating operational capacity. The
Railways which should have been carrying bulk of cargo for upcountry
markets from Karachi carry only 7 to 8 percent upcountry-bound
freight containers and 13 percent of bulk freight. 3.
Priorities of the Government have changed after seventies
when the emphasis shifted to the road sector. Due to the reduced
investment in Railway sector by the successive Governments, the
system has resulted in frightening decline and Pakistan Railways has
failed to expand or improve its network and lack of resources has
resulted in closure of some of the sections. 4.
A Task force on Pakistan Railways was therefore constituted
by the Prime Minister in March 1997 which was required to make
specific recommendations for the restructuring and reform of
railways in order to achieve a balanced and consistent development
of the railroad sector. The Task Force submitted the following
recommendations: a)
Merge the Ministries of Railways and Communications to become
Ministry of Transport. b)
Make the Railway Board a separate powerful body at Lahore. c)
Reconstitute the Railway Board comprising members from
Private Sector. d)
Mandate the Privatization Commission to: e)
Mandate the re-constituted Railway Board to: f)
Ministry of Transport to establish Railway Restructuring
Authority to handle redundant labour and receive sale proceeds of
surplus railway land and other assets. g)
Decide which agency will sell surplus railway land. h)
Ministry of Transport to prepare legislation for the above. i)
Implementation of the Open Access Policy (already announced
in January 1996) to solicit Private Sector Participation in core
operations, with the induction of Railway Equipment Company (RECO)
in the short-term for the transportation of oil as a priority
matter. Policy
Guidelines 5.
Reorganization of Railway Structure based on the
Recommendations of the Task Force is in progress. It is therefore
desirable that no further policy changes are introduced in the
railways until the re-structuring is completed and the revised
system is tried-out for at least 5 years. 6.
Ministry of Transport should be established and undertake the
tasks vide paras 5(f) and (h) above. 7.
The following recommendations are submitted for consideration
by the reconstituted Railway Organization: a)
Railways should operate entirely as a commercial organization
so that they can recapture their due share of freight movement and
passenger traffic which has been lost to the road sector during the
last 20 years. b)
They should concentrate on movement of freight trains (both
for containers and bulk cargo) and improve passenger trains. c)
Replacement of over-aged railway assets with the help of
private sector. 8.
Review of Railway Act 1890
Law Ministry
should undertake a comprehensive review of the Railway Act to
determine its appropriateness for the privatized railway industry in
Pakistan. This review should highlight additions (especially in
terms of defining the regulatory regime) and deletions, so that a
single Railway Act could provide the legal framework for the entire
restructuring and reform programme. 9.
To reduce the losses, Pakistan Railways should adopt
following measures: a)
Short Term: b)
Long Term: Current
Status 1.
Maritime Transport is controlled by the Ministry of
Communications at Islamabad. All the field organs of Ports
and Shipping, however, are located in Karachi Ports & Shipping,
Mercantile Marine Department and both major ports. PNSC and Private
Sector Shipping Organizations are also located in Karachi. 2.
Gwadar, a mini port and some other fishing harbours (Pasni,
Jiwani, Somiani and Ormara) are located on the Makran Coast. 3.
Karachi Port as well as Port Qasim have a large number of
development projects in hand. 4.
Pakistan Flag Merchant Fleet has diminished in size from
about 71 vessels in 1971 to 1 8 vessels currently. 5.
Pakistan Flag Vessels currently transport less than 8
percent of total national sea borne foreign trade. Policy
Recommendations 6.
Ports
The following policy guidelines be incorporated for
establishment of new ports and modernization and operation of
existing ports in Pakistan: a)
As the need for a third major port for Pakistan has been
established, recommendations on Gwadar Port should be implemented. b)
Development, establishment and modernization of smaller ports
by the Provincial governments of Sindh and Balochistan may be
permitted subject to proper feasibility. c)
The decision taken by the GOP in October, 1997 that all ports
in Pakistan will function and be administered under the “Landlord
Port” concept has been welcomed by all concerned. This decision
must be implemented without further delay to ensure that all port
services are expeditiously privatized. d)
The development plans of KPT and PQA, which have been
prepared for implementation, should be completed according to
schedule. Better coordination between the development plans of KPT
and PQA should be ensured by the Ports and Shipping Wing so that
they are complementary and in the best national interest. e)
Development plans of Port Qasim should focus on proper land
utilization to develop the area for port based industries in order
to promote export potential of the country. f)
All future development projects of port infrastructure at KPT
and PQA including cargo handling terminals and other ancillary
facilities and services must be established exclusively in the
private sector. g)
The antiquated Dock Labor Board in Karachi must be abolished
and labor laws applicable to port workers in Pakistani ports,
streamlined and modernized. h)
The environmental conditions at Karachi Port are in a
deplorable state. All civic bodies including KDA, KMC, KWSB and
Industries should cooperate with the port authorities for minimizing
the environmental degradation of KPT as well as PQA. i)
Environmental aspect should be duly considered for all future
establishment and development of ports. j)
New legislation should be enacted to revise the out dated
Karachi Port Act in keeping with the present requirements. k)
Appropriate measures should be adopted to reduce the port
operating cost and port tariffs as far as possible to make Pakistani
Ports competitive with other ports of the region. 1)
There should be no duty on the harbor crafts used for port
services and the container or cargo handling equipment used within
ports, container freight stations and the dry ports. 7.
Shipping: a)
New Merchant Shipping Act should be enacted at the earliest
to enable regulation of shipping in accordance with the latest
international conventions and practices. b)
Merchant fleet of Pakistan should be expanded to carry due
share of national sea-borne trade and to participate in the
international trade by providing suitable incentives to the private
sector to acquire ships under the national flag. c)
There should be no restrictions as to type, age, size and
class of the vessels for purchase, sale or registration under
Pakistan flag. The ships owned by a company registered in Pakistan
should be registered on payment of due registration fee. Temporary
registration of bare boat chartered vessels by Pakistani companies
should also be allowed in accordance with the international
practices on payment of prescribed registration fee. d)
There should be no customs duty or sales tax on ships
registered in Pakistan. Pakistan flag vessels, when sold for
demolition in local market, should be subject to custom duty levied
on weight of ship and not on value of ship. e)
Sale and transfer of Pakistani registered ships to foreign
interests should be allowed and the vessels’ should be deleted
from the Pakistani register after following the prescribed
procedures. |
