Document of The World Bank FOR OFFICIAL USE ONLY Report No. 2105a-TH STAFF APPRAISAL REPORT THAILAND BANGKOK TRAFFIC MANAGEMENT PROJECT November 30, 1978 Urban Projects Department This document has a restricted distribution and may be used by recipients only in the performance of their official duties. Its contents may not otherwise be disclosed without World Bank authorization. CURRENCY EQUIVALENTS Currency Unit : Baht (B) US$1 B 20 B1 = US$0.05 B 1 million = US$50,000 MEASURES AND EQUIVALENTS 1 meter (m) = 39.:37 inches (in) 1 square meter (sq m) = 10.13 square feet (sq ft) 1 cubic meter (cu m) = 35.:3 cubic feet (cu ft) 1 kilometer (km) = 0.62 mile (mi) 1 hectare (ha) = 10,000 sq m or 2.471 acres ABBREVIATIONS AND ACRONYMS BMA - Bangkok Metropolitan Administration BMTA - Bangkok Mass Transit Authority ETA - Expr.essway and Rapid Transit Authority MOI - Ministry of Interior NTB - National Traffic Board TPD - Traffic Police Division, Metropolitan (Bangkok) Police Bureau UTPO - Urban Transportation Planning Office VOC - Vehicle Operating Costs GOVERNMENT OF THAILAND FISCAL YEAR October 1 - September 30 FOR OFFICIAL USE ONLY THAILAND STAFF APPRAISAL REPORT BANGKOK TRAFFIC MANAGEMENT PROJECT Table of Contents Chapter Page No. I. BACKGROUND . ............. ....................... ... 1 A. Urban Development in Thailand .... ............ 1 B. Bangkok Metropolitan Area .................... 1 C. Existing Transport Conditions in Bangkok ..... 3 D. Ongoing and Planned Transport Infrastructure Investments Independent of the Proposed Project ...................... 6 E. Bank Involvement and Strategy in Urban Transport Sector .......................... 7 II. PROJECT COMPONENTS, COSTS AND FINANCING ................ 8 A. Project Objectives ......................... . 8 B. Main Project Features .,....................... 8 C. Cost Estimates .......... ......... ............ 12 D. Financing .... .......... 14 E. Detailed Description of Project Elements 15 III. EXECUTING AGENCIES AND PROJECT MANAGEMENT .24 A. Project Organization and Management .24 B. The Urban Transportation Planning Office 24 C. The Traffic Police Division .26 D. The BMA Public Works Department .26 IV. PROJECT IMPLEMENTATION ........28 A. Implementation Schedule .28 B. Procurement .. .28 C. Disbursement .......... .30 D. Accounts, Audit and Progress Reports .31 E. Monitoring and Evaluation .31 F. Supervision . ....... . ......... . 31 This report is based on the findings of a preappraisal mission consisting of D.B. Cook (chief of mission), G.J. Roth, R. Podolske, K. Willen, and K. Huddart (consultant) who visited Bangkok during January 30 - February 17, 1978, and the appraisal mission consisting of K. Willen (chief of mission), and R. Podolske who visited Bangkok April 15 to May 5, 1978. Irmgard Kretzer assisted in preparation of the report. This document has a restricted distribution and may be used by recipients only in the performance of their official duties. Its contents may not otherwise be disclosed without World Bank authorization. -2- Table of Contents (Cont'd) Chapter Page No. V. IMPACT AND ECONOMIC ANALYSIS ........................... 33 A. Expected Impact ........... .. ................ 33 B. Evaluation of Costs and Benefits ............ 35 C. Distribution of Benefits .......... .......... 38 D. Sensitivity Analysis ........................ 38 E. Impact on the Urban Poor .......... .......... 41 F. Risks and Uncertainties .. ................... 42 VI. AGREEMENTS REACHED AND RECOMMENDATIONS ................ 44 ANNEXES 1. Technical Assistance: Eastern Seaboard and National Secondary Cities Development Study 2. Minimum Staff of UTPO for Project Implementation 3. Related Documents and Data Available in Project File MAPS 1. IBRD 13577R Traffic Signal System Coordination 2. IBRD 13578R1 Proposed Area Pricing Zone and Road Flyovers 3. IBRD 13579R Proposed Bus Lanes THAILAND BANGKOK TRAFFIC IIANAGEMENT PROJECT I. BACKGROUND A. Urban Development in Thailand 1.01 Thailand's urban sector is characterized by a moderately rapid rate of growth and the predominance of Bangkok. In 1976, 7.3 million people (or 17% of the nation's population) lived in urban areas. During 1970-76, the urban areas grew at an average rate of 4.9% per annum, compared to a total national population growth rate of about 2.9% per annum. The urban growth rate is expected to increase during the next decade because of the diminishing supply of unoccupied agricultural land. 1.02 Bangkok, with a 1977 population of 4.8 million and an annual growth rate of about 5%, accounts for 60% of Thailand's total urban population. Al- though the city accounts for only 10% of the total national population, it contributed 27% of national GDP in 1976, and its Gross Regional Product per capita (B 20,006) was 2.6 times greater than the Gross Domestic Product per capita (B 7,582). In 1976, Thailand's second largest city, Chiang Mai, had an urban population of only 105,000. 1.03 Government urban policies articulated in the Fourth Development Plan (1977-81) emphasize the promotion of regional urban centers as well as improve- ment of conditions in Bangkok. However, the Government has not developed an explicit: strategy and investment program to develop the nine regional centers designat:ed in the Plan. The technical assistance component of the proposed project includes funds to prepare projects to promote urban development out- side Bangkok (Annex 1). B. Bangkok Metropolitan Area Economy and Poverty Population 1.04 Bangkok is an economically dynamic city. The private sector is characterized by small firms, competition and price responsiveness. The city's manufacturing industries are diversified, with textiles and apparel accounting for almost 30% of industrial employment. Basic metal industries, including manufacture of metal products, machinery, transport equipment and appliances, account for another 28%. Unemployment rates have been unusually low, estimated at less than 2.5% during the first half of the 1970s. Poverty Population 1.05 The city of Bangkok is relatively prosperous compared to overall Thai income standards. Only 9% of the city's population is below the "abso- lute poverty" line established by the Bank. Approximately 15%, however, are below the "relative poverty" line. With the exception of the Klong Toey - 2 - area next to the port complex, there are no large concentrations of squatter settlements which might demand special localized transportation services. There are, however, large numbers of small poverty pockets scattered through- out the metropolitan area. The average Thai family at the 10% income per- centile (approximately equal to the absolute poverty line) makes over 14,000 Baht annually (approximately $60/month) which is sufficient to accommodate regularly at least one bus rider in the family. It is estimated that less than 10% of Bangkok families can afford a car and that, at most, 20% can afford some form of private motorized transportation; the remainder, including all of the urban poor, rely exclusively on buses for their motorized travel (so:e also paras 5.19-5.25). :neral Pattern of City Development 1.06 Bangkok can be perceived as a city growing in a generally concentric fashion, with a densely populated core and with densities diminishing in in- verse proportion to the radius to a distance of approximately 8 km from the center. Then there is a sharper decrease in density as urbanization blends into the rural area. Poor accessibility to the area west of the river, combined with the rolling and high-valued farmland, has stunted development of this area. Nevertheless, Thonburi has developed as a twin city to Bangkok on the west bank and has potential for further growth. In recent years, Bangkok has grown mostly east and north. It can be expected that, with the construction of new roads, a substantial amount of development will occur on large vacant tracts of land on the city's northeast and south sides. Land Use Characteristics 1.07 Bangkok can be generally typified as a highly amorphous city with a mixture of land-use activities which minimizes work-related travel. Shop houses, with their attendant residential, industrial and commercial uses, can be found in all parts of the city. There is nb single strong central business district in the western sense and, in the core area of the city which is about 5 km in diameter, a large amount of residential development is mixed with commercial development. On the city's north and east sides, large areas of predominantly residential use have developed but, even in these areas, there is a mixture of income levels and dwelling types as the population tries to remain close to places of work and commerce. 1.08 Responsibility for the city's administration rests primarily with the Bangkok Metropolitan Administration (BMA), created in 1972 to consolidate urban management functions in the greater metropolitan area. BMA has over 30,000 employees. Its responsibilities include primary education, construc- tion and maintenance of roads and canals ("klongs"), sanitation, drainage, medical services and social welfare, with over half of its (1978) budget of approximately Baht 2.8 billion ($142 million) going to education (21%) and public works (29%). While BMA enjoys considerable local autonomy, several municipal services are provided by other government agencies, the most im- portant being the Metropolitan Water Works Authority, the Metropolitan Elec- tricity Authority, the Telephone Organization of Thailand, the Metropolitan Police Bureau, the National Housing Authority, and the Bangkok Mass Transit - 3 - Authority. The tax base of the city is weak with only about 14% of BMA's revenues being levied locally. The bulk of BMA's revenues comes from a business tax (30%), vehicle registration (25%) and government grants (11%); only 2% come from property valuation taxation. C. Existing Transport Conditions in Bangkok Road Syst:em 1.09 Bangkok's transportation infrastructure can be generally charac- terized by a very low proportion of space devoted to roadways (not more than 10% in the inner core) and a road network dependent on a limited number of major roads with only a few connecting links, particularly outside the grid network in the central area of the city. The remaining road network, consisting of a discontinuous jumble of minor streets or "sois," is typi- cally narrow, winding, and has poor system continuity. The net result is a supply and configuration of road space that is unable to cope adequately with existing transport demand, let alone projected or latent transport growth. As the motor vehicle fleet expands at an approximate rate of over 8% annually (see Table I-1), the comparatively modest road building and traffic management measures that have been introduced have not been able to keep pace. Travel speeds have accordingly declined and will decline further until a point is reached where certain trips are deferred or altogether eliminated as the costs of travel become too high. There is some evidence to indicate that this point may have already been reached as typical car speeds are only 12 km/h and bus speeds '3 km/h during the heaviest travel hours in the central area of the city. Furthermore, congestion has reached such high levels that no discernible "peak hour" can be determined as heavy traffic spreads throughout most of the working day. Table I-1: SIZE OF MOTOR VEHICLE FLEET IN BANGKOK: 1967-76 Vehicles Average 1976 Share Registrations Annual of Total Motor (1.000s) Growth 1/ Vehicle Fleet Type of Vehicle 1967 1976 x % Private Car 82.5 202.0 +10.5 51.1 Motorcycle 47.3 94.2 + 8.0 23.9 Truck /2 34.0 61.5 + 6.8 15.6 Taxi 9.0 14.3 + 5.2 3.6 Samlor /3 6.9 6.6 - 1.7 Bus 2.8 5.1 + 6.9 1.3 Others 6.5 11.1 + 6.1 2.8 TOTAL 189.0 394.8 + 8.5 100.0 /1 According to registration records, total motor vehicle registrations remained constant between 1974-76. /2 Includes minibuses, many of which are converted trucks. /3 A small, covered 3-wheeled motor vehicle for two passengers. Source: Ministry of Interior. -4- Public Transport 1.10 More than 60% of person trips in the primary direction of travel on arterial streets are carried by buses and minibuses which constitute only 6% of the stream of passenger vehicles. In contrast, private cars which form the bulk of the traffic stream (57% of all vehicles) carry only 26% of all person trips (see Table 1-2). Table I-2: ESTIMATED PERSON TRIPS BY MODE IN PRIMARY TRAVEL DIRECTION ON ARTERIAL STREETS, CENTRAL BANGKOK: NOVEMBER 1977 /1 Public or Specific Percentage Estimated Private Vehicle of Estimated Percentage of Transportation Type Vehicles Occupancy Person Trips Private transportation Private car 57.5 1.9 26.1 Motorcycle 23.0 1.3 7.2 Subtotal 80.5 33.3 Public transportation Bus 3.5 60.0 /2 50.2 Minibus 2.5 20.0 12.0 Taxi 9.0 1.5 3.3 Samlor 4.5 1.2 1.2 Subtotal 19.5 66.7 TOTAL 100.0 100.0 /1 Based on observations at 13 locations generally between 07:30-0900 and 17:00-17:45. All observations made in primary travel direction. /2 Seating capacity of bus is 40 passengers; actual average occupancy may have been substantially higher. 1.11 Fixed route bus services are provided by the Bangkok Mass Transit Authority (BMTA). In addition, a large number of authorized and unauthorized minibus services operate in the city. 1.12 The BMTA was established by the Government as a state enterprise under the Ministry of Communications in April 1976 by the amalgamation of 24 private bus companies. The Authority has recently expanded its fleet, assisted by Government financing; by fall 1978, the total operational fleet consisted of approximately 4,740 units (see Table I-3), making it one of the largest in the world. It operates about 100 regular routes and an additional - 5 - 11 routes which offer air-conditioned services. In March 1978, the total number of daily passenger trips averaged about 3.3 million. Estimated peak demand was about 75% over off-peak, while peak supply was only 35% above off- peak. This implies considerable overloading of buses during peak travel hours. BANGKOK TRAFFIC MANAGEMENT PROJECT Table 1-3: COMPOSITION OF BMTA BUS FLEET: OCTOBER, 1978 % of Total Not Operational Operational Type of Bus Fleet Operational /1 Fleet Fleet Old buses acquired from former operators /2 2,670 1,260 1,410 29.7 New ordinary buses purchased by BMTA /3 2,300 - 2,300 48.5 New air conditioned buses purchlased by BMTA /3 200 - 200 4.2 Ordinary buses leased from private owners 690 - 690 14.6 Air conditioned buses leased from private owners 140 - 140 3.0 TOTAL 6,000 4,740 /4 100.0 /1 Considered to be unserviceable /2 The only buses being maintained by BMTA /3 Acquired in 1977 and 1978; all being maintained by private service contracts /4 Approximately 4,000 operational on typical day Source: P.G. Pak-Poy and Associates 1.13 In order to accommodate the modal shift that will be generated by Government policy measures under the proposed project, BMTA must improve on its operations. Certain factors adversely affecting BMTA's services, such as traffic congestion, are beyond its control. However, BMTA has to overcome internal problems, created by the amalgamation and basically related to the enlarged scale of operations in management, operations, maintenance and finance. 1.14 Because of poor financial performance since its establishment, BMTA has accumulated operational deficits which at October 31, 1977 amounted to about B 340 million and exceed the pa:id-up capital of the Authority. - 6 - cording to the summary balance sheet available at that date, total assets ounting to about B 690 million were represented entirely by external debt ability of which 40 percent related to trade creditors and overdraft cilities. Current assets amounted to about B 10 million compared to cur- nt liabilities of nearly B 300 million. The substantially increased fleet pacity and recently revised fares structure wi:Ll result in FY 1978 revenues more than double the FY 1977 revenue level. However, in the absence of ternal financial resources, the fleet expansion is being financed by long- rm loans involving substantial interest expenses and requiring a considerably ,creased depreciation provision. The April 1, 1]978 fare increase from B 0.75 S03.75) to B 1.00 (USd5.00) will help stem further deterioration in financial rformance, but additional measures will need to be taken to rationalize the thority's capital structure and secure financial viability over the medium rm. Technical assistance included in the project provides for a detailed view of BMTA finances and development of financial targets and the design .d installation of effective systems for financial control and forward anning (para 2.35). 15 Minibuses, whether authorized or unauthorized, provide valuable Lblic transport services in Bangkok. About 2,000 authorized minibuses, erated under a franchise by three groups of independent operators on BMTA utes, carry about 600,000 daily passenger trips, 1/ and most of them charge 'vernment established fares. In addition, a range of 5,000 to 8,000 "illegal" either properly licensed nor franchised) minibuses operate in the city, 2/ arging about the same as regular fares during the daytime, but up to 100% ove those fares during the night time. A Government-appointed committee considering all relevant issues related to the role of minibuses as well other modes of public transport in Bangkok. They perform a valuable .rvice as they cut excess peak demand for public transport, and ply many .rrow streets not accessible to standard size buses. During negotiations, surances were obtained that the Government will define in consultation with Le Bank and not later than December 31, 1979, the role of all modes of public *ansport in Bangkok in order to meet the needs of- the travelling public, and iplement an agreed policy by mid 1980. D. Ongoing and Planned Transport Infrastructure Investments Independent of the Proposed Project 16 There are at least four major transport investments currently under .y in Bangkok that have some relationship to the proposed project: (a) a ,11 road being constructed by the Expressway and Rapid Transit Authority TA) from the port area to Din Daeng, where it links up with the "Super- .ghway" leading northward to the airport and points beyond (see Map 13577R); ,) a "Middle Ring" Road being constructed by BMA, one-third of which is in :istence (mostly on the Thonburi side) and another third under construction; As tentatively estimated by the Ministry of Communications. No reliable information exists on the number of daily passenger trips by "illegal" minibuses. (c) a Sathorn Road extension and bridge being constructed by BMA. This road will provide a much needed southern by-pass to the congested core area; and (d) a. road also being constructed by BMA extending easterly from the inter- section of Din Daeng and Soi Asoke to Soi 71 providing traffic relief to Petchbur:i Road and better access to the developing northeastern quadrant of the city. Additionally, the ETA has appointed consultants to undertake a feasibility study of constructing a mass transit system on its own right of way. E. Bank Involvement and Strategy in Urban Transport Sector 1.17 Bank involvement in the urban transport sector in Bangkok dates back to 1969 when a Bank mission explored the possibility of supervising a proposed UNDP study of transport in the city. Subsequently the Bank was involved in reviewing the proposed terms of reference for an urban transpo:rt study to be financed by the Government of the Federal Republic of Germany. During the years 1973-1976, the Bank was actively involved in reviewing the work of this study produced by a team of German consultants F.H, Kochs and Rhein-Ruhr Ing-GMBH which was attached to the Office of Metropolitan Traffic Planning. The consultants proposed a number of improve- ments which could be basically classified as (a) long-term capital intensive extensions to the transport infrastructure and (b) short-term low capital improvements to the existing infrastructure. The Bank responded positively to the Government's request for financial assistance to implement many of the propose.d short-term low capital investments provided the Government would undertake steps to discourage the uneconomic use of private cars in favor of higher occupancy vehicles. 1.18 These discussions were not immediately successful due principally to the Government's reluctance to institute strong traffic restraint policy measures and its desire to place highest priority on the proposed capital intensive projects including a toll road system currently being constructed by the Expressway and Rapid Transit Authority (ETA). In the meantime an Urban Transportation Planning Office (UTPO) was created based on the German consultants' recommendations and served as a base for updating the consultants recommendations and for continuing the triansportation planning process in Bangkok. I_i9 During late 1977 the Government/Bank dialogue came to fruition in the face of continually deteriorating traffic conditions. At this time the Government decided to proceed with short-term traffic relief measures combinied with stringent policy measures aimed at discouraging uneconomic use of low occupancy vehicles (principally private autos) and encouraging high occupancy vehicles (principally buses). In support of these policy commitments the Minister of Interior has appointed four committees, reporting to the National Traffic Board (see para 3.02) to prepare detailed proposals for (i) area pricing (paras 2.26 and 2.27), (ii) parking (paras 2.28, 2.29 and 2,30), (iii) staggered working and school hours (para 2.31), and (iv) traffic noise abatement and air pollution detection (para 2.17). The Gov- ernment has also strengthened the UTPO by giving it greater powers and staff; and the Cabinet intends to further strengthen this office (para 3.02). -8- II. PROJECT COMPONENTS, COSTS, AND FINANCING A. Project Objectives 2.01 Bangkok's traffic situation has deteriorated to the point where congestion is placing serious restraints on the continued economic develop- ment of the city. The costs of travel (measured in person-time and vehicle operating costs) are very high and promise to climb still higher, threatening strangulation of economic activity and the increases in economic potential offered by a dynamic urban environment. Accordingly, the principal project objectives are to increase (a) travel speeds and (b) person-trip capacity of the existing transportation system in order to facilitate the continued economic development of Bangkok, without diverting scarce resources from other high priority development activities in Thailand. The project further aims to improve permanently the capability of Bangkok officials to plan, design, execute and enforce projects and programs directed at maintaining and improving transportation conditions within the metropolis. Recognizing the importance of decentralizing urban development in Thailand, a separate but related project objective is to encourage urban and industrial growth outside of Bangkok (see Annex 1). B. Main Proiect Features Principal Project Components 2.02 The proposed project will include: (a) strengthening of urban transport management, particularly as it relates to strengthening the Urban Transportation Planning Office (UTPO) and the Traffic Police Division (TPD), (b) increasing the capacity of the urban road network through low cost improvements to selected intersections and road links, and through the provision of equipment for more effective traffic control; (c) improving public transport by strengthening the Bangkok Mass Transit Authority (BMTA), by providing additional bus lanes and bus bays and by giving priority to high occupancy vehicles; (d) implementing specific policies designed to discourage the uneconomic use of low occupancy vehicles; and (e) technical assistance to support the above project activities, and to conduct an Eastern seaboard and national secondary cities development study. 2.03 The basic feature of the project is the policy package -- including area pricing, bus priority measures, parking controls, and staggering of working and school hours -- which will discourage the use of non-essential private vehicle travel. Without this policy package, unchecked traffic growth, particularly in Bangkok's central area, would offset the impact of proposed low-cost physical improvcelutL L" a short-term period. The onl-y alternative solution would require substantial, costly, and time-consuming additions to the existing road network which, however, has low priority in Thailana's economic development needs. By combining these policy measures with selected high-priority traffic engineering and management schemes, the Government will achieve expeditious relief to Bangkok's traffic congestion at a high rate of return (see Chapter V). Project Elements Summarized 2.04 The proposed project components described above would be made up of specific project elements as outlined below and as further described in Section E of this chapter. The intended effect of each specific project element is summarized in Table II-1. (a.) strengthen urban transport management: (i) strengthening the Urban Transportation Planning Office5(UTPO), to improve its ability to plan and design traffic management projects (no project cost allocation); (ii) restructuring and strenghening the Traffic Police Division (TPD) of the Metropolitan (Bangkok) Police Bureau to improve traffic operations and enforcement (no project cost allocation); (iii) specialized police equipment to improve police mobility and communications in improvi-ng traffic management and enforcement ($1.1 million); (iv) traffic monitoring and air pollution detection equipment to quantify changes in traffic volumes and speeds and to determine levels of air and noise pollution ($100,000); and (v) establishment of a traffic' noise abatement program and air pollution detection program to reduce high noise and air pollution levels along major road arteries (no project cost allocation). (b) increase capacity of the urban road network: (i) improvements in traffic signalling, including cen- tralized traffic signal control, modernization of existing signals, and new signal installations to increase system capacity and safety ($2.5 million); (ii) road flyovers (seven) to increase road capacity at critical intersections in the road network ($10.5 million); - 10 - BANGKOK TRAFFIC MANAGEMENT PROJECT Table II-1: OBJECTIVES OF PROJECT ELEMENTS Project Objectives Improve Transport Improve Safety System Performance and Environmental (principally speed) Conditions Improve Increase Encourage Improve Transport System Manage High- Pedestrian Project Vehicle Travel Occupancy and Reduce Execution & Capacity Demand Vehicle Use Vehicular Traffic Management Area of Project Elements Safety Noise Project Appliaation Strengthen Urban Strengthen FIPC - - - - - x Transport Msanage- ment Traffic police x _ reorganization Police equipment x - - x - x Traffic police Monitoring equipment - - - - 0 x Portable Noise abatement x _ City-wide program Increase Capacity Centralized signal x - - _- - Central area of Road Network control Signal modernization 0 - - x - - City-wide Signalize new inter- x - - O - - City-wide(20 locations) sections Road flyovers x - - - - - Mostly central area (7 locations) Street widening x - - - - - Mostly central area (10 km) Junction improvements x - - 0 - - City-wide(60 locations) Street signing and marking x - - x - - City-wide Missing street links x - - - - - City-wide(lO locations) Improve Public Bus lanes x - x - - - City-wide (100 km) Transport Extended buis bays x - 0 - - - Mostly central area Bus shelters - - x - - - City-wide Bus and pedestrian - - x x 0 - Central area priority streets Policy Measures Area road pricing - x x 0 0 - Central area to discourage the Use of Low Parking controls - x - - - Mostly central area Occupancy Staggered work and Vehicles school hours x x - - _ Mostly central area Technical Traffic enginearing - x Assistance (UTPO) x - Bus management (BMTA) - _ _ _ _ x Staff training (TPD, - _ _ _ x BMTA, UTPO) LEGEND: x primary objective 0 secondary objective (iii) street improvements, iio_uding rDad widEn'ng junction improvements a-ad E treet s-ignin.g and marking, to increase f.C capacities and safety ($3.50 aillnior end (iv) construction of mi.sstcg i ns to provide additional road ne etvn ) arsc a,able of handling significant traffic volumes ($2.5 million). (c.) improve public transport. (i) bus prit asures, incLuding reserved bus lanes, special bus and pedestrian street priority measures; extended bus bays. and bus shelters to encourage bus usage and to improve traffic operations ($1.1 million); (d) policy measures designed to the uneconomic use of low occupanc, vehicles. (i) introduction of an area -J scheme aimed at discouraging the use of congested roads by low- occupancy vehicles (pri-c±ipally tars) in the central area during the 7workizng day ($0.25 million); (ii) parking controls to discourage long-term "com- muter" parking, to encourage short-term business parking, and to remove obstructions to moving traffic ($0.2 million): and (ii) staggering of workin o and schol .hours to reduce passenger overloading of the bus system during peak travel hours (no project cost allocation). (e) technical assistance aLd training: (i) to the UTPO about 20 expert-months of consultancy serv:ices, to assist in preparation and implementa- tion of the project, as further detailled in paras 2.32 and 2.33 $9O0,000y} (ii) to the UTPO, about 8 expe rt-wnths ($60,000) to augment financing by the 3ritish inistry of Over- seas Development of monitorfting activities to be carried out by the Asi2an Inst'itute of Technology under contract witth tie U-K- Trapsnort and Road Research Laboratory (paras 2,-.IS, aSd 4c.%9, 4.10); - 12 - (iii) to the BMTA, including 75 expert-iaujtlis ot LoUsUl ai'd', services, in areas of management, operations, mainte- nance and finance, as further detailed in para 2.38 ($567,000); (iv) to the UTPO ($30,000), the BMTA ($20,000), and the TPD ($150,000) for staff training programs (see paras 2.33, 2.35 and 2.36); (v) to the UTPO for public relations assistance to advise the public on project matters with particular emphasis on policy measures ($45,000); and (vi) to the Ministry of Interior for an Eastern seaboard and national secondary cities development study ($0.72 million). Relationship of Project Elements 2.05 The above project elements are designed as a package and will require some care in scheduling to assure smooth project performance (see proposed project scheduling, para 4.01). Basically, the administrative changes and technical assistance components of the project shLould be expedited to facilit- ate project execution. The policy and physical components can be introduced simultaneously with careful scheduling. However, introduction of the road pricing scheme must follow sufficient physical improvements and improved transit service that will accommodate expected shifts in travel patterns. C. Cost Estimates 2.06 The total project cost is estimated at B 680 million ($34.0 million) including taxes and duties of B 60 million ($3.0 million) with a foreign exchange component of about B 320 million ($16.0 imillion) or about 47% of total project cost. Property and land acquisition costs included are about B 10 million ($0.5 million). Cost estimates are summarized in Table II-2. 2.07 Cost estimates are based on the following guidelines: (a) for area pricing, on preliminary specifications, subject to further technical studies; (b) for traffic signal system, on an existing negotiated contract by a signal manufacturer and comparable installed costs for non-negotiated equipment; (c) for bus lanes, on preliminary engineering; (d) for flyovers, on detailed engineering for two flyovers; (e) for other street improvements, on prelimin- ary engineering; (f) for police and monitoring equipment, on recent bid prices for similar equipment; and (g) for technical assistance, on February 1978 estimates. Local services are estimated at an average inclusive rate of B 30,000 per eixnert month and foreign services at about $7,500 per expert- month, including allowances for accommodation and transport. 2.08 All costs are expressed in 1978 prices. Physical contingencies of about 15% have been included. Price escalation on all works, goods and services is estimated at 6.5% to 7% per year for goods and 7.5% to 8% per year - 13 - aAG.ROK TRAFFIC WkKAGE.MES4T PROJECT Table II-2: SUMM2ARY OF PROJECT COST ESTIMATESZ- 3aht '000 JS$ '000 O Foreign Project Component Local Foreign Total Local Foreign Total Exchange A. Sen tten Urban Transport Management 1. Pclice equipment 3,300 18,700 22,000 165 935 1,100 85 2. Tral'fic monitoring equipmenit 3200 11700 2,000 15 85__ 100 85 Subtotal A 3,600 20,400 24,o00 180 1,020 1,200 85 B. Increase Capacity of rUrbanL RoDad Network 1. Area signal control system 15,300 18,700 34,000 765 935 1,700 55 2. Existing signal modernization 2,700 3,300 6,000 135 165 300 55 3. Signalize new intersections 4,500 5,500 10,000 225 275 500 55 4. Road flyovers 105,000 105,000 210,000 5,250 5,250 10,500 50 5. Street improvements 42,000 28,000 70,000 2,100 1,40C 3,500 40 6. Missing road links 35,000 1_5, 000 50,000 1,75 7 50 2,503 Subtotal b 204,500 175,500 380,000 10,225 8,775 19,000 46 C. ImprovE Public Transport Ras pri.ority teasures 13,200 8,800 22,000- 660 440 1,100 40 Subtotal C 139200 8,800 22,000 660 440 1,100 40 D. Policy Measures L . Introduction of road pricing 2,500 2,500 5,000 125 125 250 50 2. Parking controls 2,000 2__4000 100 100 200 50 Subtotal D 4,500 4,500 9,000 225 225 450 50 E. Technical Assistance and Training 1. Tiaffic engineeri g (UTJO) 3,600 14,400 18,000 180 72C 900 80 2. Monitoring (UTPO) 240 960 1,200 12 48 60 80 3. Bi.s man:fmenlt (BMTA) 2,268 9,072 11,340 113 454 567 80 4. Training 800 3,200 4,000 40 160 200 80 5. PLblic relations 180 720 900 9 36 45 80 6. Secondary cities project 3,600 10,800 1440 180 540 720 75 Subtotal E 10,688 39 152 49,840 534 1,958 2,492 79 Subtotal A - E 236,488 248,352 484,840 11,824 12,418 24,242 51 F. Desigs and SupervisionL85 48,484 - 4 2,424 2,424 0 Subtotal A - F 284,972 248,352 533,324 14,248 12,418 26,666 47 G. Contingencies 1- Thysi2 aL 35,473 37,253 72,726 1,773 1,863 3,636 51 2. IriceZY 35,473 37,253 72,726 1,773 1,863 3,636 51 Subtotal G 70,946 74,506 145,452 3,546 3,726 7,272 51 tOTAL A G. 355,918 258 678,776 17,794 16,144 33,938 47 Say 360,000 320,0OC 680,000 18ooo 16,000 34 47 L Incltdes duties and tax&s estimatea at B 60 million (US$3.0 million). /2 Inclades cost of property and land acquisitior esuimated a 1. 10 mi i ilio> ($ .5 millior'. Lf Monitoring directly financed under the proposed loan. In addition, the -1.K. Transport and rced Research Laboratory will finance on a grant basis monitoring of project inputs for UFPO, estimated total cost about D 1.44 million (US$72,00o). L4 For PDP, UTPO and BMTA. L5 Estimated at 103 of the project costs. /6 Estimated at 153 on ccmponents A through E. Esti-mated at 15, for the three-year construction period, 1978-8l, on components A through E. - 14 - for works and services. This amounts to an overall price contingency of about 15% through 1981. D. Financing 2.09 A proposed Bank loan of $16.0 million (B 320 million) would finance 47% of total project cost, equal to the foreign exchange cost, or about 52% of project cost net of taxes, duties and land acquisition ($3.5 million). The loan would be made to the Government at 7.35% interest, for a term of 20 years, including a grace period of five years. The balance, $18.0 million (B 360 million) would be financed by the Government, as direct expenditures to be channelled through the Ministry of Interior (MOI). Project funds will be allocated by the Government through the annual budget to five agencies as shown in Table II-3 below. During negotiations, assurances were received that the Government will provide project funds on a timely basis to allow expeditious project implementation. 2.10 In addition to the above amounts an equivalent of $72,000 (B 1.44 million) will be provided in the form of a grant by the U.K. Transport and Road Research Laboratory for the purpose of monitoring project impacts (see also paras. 4.09, 4.10). Beyond initial project costs, recurrent project costs for implementing (a) area pricing (B 30 million), (b) parking controls (B 30 million), and (c) bus lanes (B 6 million) are estimated. However, it is further estimated that revenues from these schemes will greatly exceed the recurrent costs (see Table V-3). Table II-3: ALLOCATION OF PROJECT FUNDS /1 (Million Baht) Government Agency Project Component UTPO TPD BMTA BMA MOI Total A. Policy Measures - - - 12.6 - 12.6 B. Traffic signal system 70.1 - - - - 70.1 C. Bus priority measures - - - 30.9 - 30.9 D. Road flyovers - - - 294.5 - 294.5 E. Street road improvements - - - 98.2 - 98.2 F. Missing street links - - - 70.1 - 70.1 G. Police equipment - 30.9 - - - 30.9 H. Traffic Monitoring equipment 0.6 1.0 - 1.2 - 2.8 I. Technical assistance and training, traffic 29.1 4.2 16.4/2 - - 49.7 J. Technical assistance, secondary cities _ - - - 20.2 20.2 Total allocation 99.8 36.1 16.4 507.5 20.2 680.0 Distribution percentage 14.7 5.3 2.4 74.6 3.0 100.0 /1 Including contingencies, and design and supervision costs. /2 To be channelled through UTPO. - 15 - Collection and Disbursement of Revenues Generated by the Project 2.11 The project will generate substantial revenues through the mechan- isms of (a) area pricing, and (b) to a lesser extent, through more extensive and higher priced parking charges 1/. The Government is considering either to (a) allow these collections to be part of general revenues, or (b) earmark them, e.g. in a Bangkok Road Improvement Fund. 2.12 Whatever option the Government prefers to select, it is important that appropriate charges will be levied for area pricing and parking schemes, and that these schemes will be adequately operated and maintained. The policy package to be submitted to the Bank will provide a financial plan on the collection and disbursement of funds generaLted by area pricing and increased parking charges. E. Detailed Description of Project Elements Strengthen Urban Transport Management 2.13 The UTPO - The Urban Transportation Planning Office, as the key plannirLg, design, and management agency for the project, needs permanent staff strengthening and interim technical assistance for the duration of the project. Measures to strengthen the staff and to give the office more author.ty are described separately in paras. 3.02, 3.03, and 3.04. 2.14 The Traffic Police Division. To date, responsibility for traffic controL and traffic law enforcement in the city has been undertaken by a 800 man traffic police force with assistance from police located in district statio'as. Realiting the need for more coordinated action in these areas, the Government has decided to reorganize the Metropolitan (Bangkok) Police to provide a separate traffic-oriented line of command, the Traffic Police Division (TPD), for about 2,000 traffic police. The police equipment to be provided under the project will be procured, operated and maintained by the TPD (see also para 3.05). 2.15 Police Equipment. This equipment, including motorcycles and radio communications, will enhance police mobility and reduce the need for point duty at individual junctions (see Table II-4). Agreement was reached during negotiations that the government will provide the TPD in a timely manner with the resources, staff and facilities required for operation and maintenance of police equipment procured under the project. 1/ While the exact specifications of the Government's proposals at not kcnown at this date, it is vla"siqhle that B 300 million could be "ol- :Lected annually from a central area pricing scheme under which half of the non-exempt vehicles elected to pay. 16 -a-g Ic P OQ LI CE I:QU Total Radio Units 10 5.00 250,000 Police care 1 50 225,000 Motorcycles C6 4.00 200,000 Crane trucks 8 1.80 90,000 Jeeps 1?6 1.80 90,000 Light trucks 4 0.60 30,000 Workshop equipmernt t 1.10 55,000 Spare Parts 2.00 100,000 Miscellaneous - 1.20 60,000 TOTAL 22.00 1,100,000 /1 inc1udes Hlazard war=ing lights, anid training aids (for traffic safety campaigns~,t 2.16 Traffic a-d Polution Monitoring Equipment. To permit adequate monitoring of zr "'' C e ffiC as well as to detect noise and air pollution levels of this traflic, $100 000 will be allocated to cover the costs of (a) permanent and temporary traffic count stations, (b) equipment for measuring traffic speeds, and )c) air pollution and noise detection equipment. (See also para. 2417) 2.17 Traffic Noise Abatement and Air Pollution Detection. The traffic noise level along most arterial streets in Bangkok is much higher than on streets with coma 2 i eoval s o f traffic in citi4es wh ere reasonable compliance with noise muffling s--dards has been attained. The proposed noise control program, to be enforced by the Traffic Police Division, will involve system- atic noise monitoring along heavily traveled streets and enforcement prior- ities assigned to those street links with the highest registered decibel levels. It is anticieated that this program can be accomplished at a minimum of public expense, the burden of costs being directed at offending private motor vehicle opperators, -'s 7lil be required principally to install adequate noise mufflers. This will 'De accomplished by establishing a continuing air pollution moni. rL c pra reia --n ?MA assisted by the UTPO. Proposals for traf fic noise abatem-n ani aLr pollution detection, including time schedules for implementation, be prepared in detail by the NTB and sent to the Bank for review an-d cmm=nt by June 30, 1979. During negotiations, assurances were received tha sct proposals mutually agreed between the Government and the Bank will be iae e under the proJect. Increase Capacitu o_____ Road ct:u- 2.18 ITrouements i in S gnllg. The project will provide for coordination of traffic signals at 92 -u-ctions (see Map 13577), upgrading - 17 - of existing signals, and the further installation of signals at new inter- sections. In the core area, new trafic signal controllers will be installed at 48 junctions and connected to a mini-computer at a traffic control center. This system will be designed and programmed to achieve optimum signal timings, and deviations will be monitored at the center for immediate remedial action. Outside the central area, the requirement for computer control is reduced because junctions are more widely separated. Here, all traffic controlled intersections will be coordinated through cableless linking equipment which also provides for different control plans to be selected automatically by time of day. In addition, closed-circuit television cameras will be provided at critical junctions and monitored at the traffic control center to assist the traffic police to resolve exceptional traffic situations. 2.19 Recognizing the poor visibility and general poor condition of the existing signal heads, approximately 70 sets of signals will be refitted or replaced. An additional 20 sets of signals will be installed at new inter- section locations as part of the junction improvement project element. 2.20 Construction of Road Flyovers. Flyovers are to be located at principal road intersections where the greatest person-trip time savings can be realized after appropriate remedial traffic management procedures such as changes in signal timing and intersection channelization are accom- plished at ground level. Seven sites have been selected for inclusion in the proposed project, as listed below and shown in Map 13578R1: (a) Phaholyothin/Padipat/Suthisarn; (b) Sukumvit/Rama IV/Soi 71; (c) Sathorn/ Rama IV/Wireless; (d) Dindaeng/Raj Prarop; (e) Raj Withee/Rama VI; (f) Rama I/Phya Thai; and (g) Sri Ayudhaya/Phya Thai. Flyovers (a) and (b) are at relatively isolated locations designed to improve particularly congested outlying road intersections. The remaining five flyovers are considered as a package of improvements designed to facilitate movement to and around the central area of Bangkok and will thus facilitate introduction of the area pricing scheme. 2.21 The basic design standards for road flyovers have been established by the Public Works Department of the BMA. The majority of the existing (and proposed) flyovers consist of two-lane carriageways constructed by laying simply supported precast prestressed beams on reinforced concrete piers and columns, founded on precast concrete piles. Although more expen- sive, there may be a need to substitute steel structures in a few locations where either (a) traffic disruption time needs to be minimized, or (b) the potential of removing flyovers to accommodate proposed (but currently not programmed) elevated rail or mass transit lines remains a distinct future possibi:Lity. 2.22 Street Improvements. To add traffic capacity outside the core area, this component will provide for: (a) Selected road widening and related improvements. A selective program of street widening will be undertaken where such widening would meet one or more of the fol- lowing criteria: (i) facilitating the deployment of - 18 - a new bus lane; (ii) permitting the creation of a needed "standard" traffic lane where such widening will increase street capacity; and (iii) accommodating a shift in traffic flows due to the impact of the area pricing scheme. All such widening should not be undertaken at the expense of significantly adversely affecting pedestrian traffic. Pavement specifications will vary depending on number of heavy axle vehicles using the roads and will be in accordance with the standards established by BMA's Public W'orks Department; (b) junction improvements. The capacity of several junc- ions could be improved at comparatively low cost. Right turn movements, both at at-grade intersections and under existing flyovers, have not always been adequately dealt with and cause additional conflicts with traffic waiting to make other movements. The large junctions at Democracy Monument and Victory Monument (where for aesthetic reasons flyovers would not be acceptable) will benefit from chan- nelization schemes. Junction improvements will include: (i) channelization (especially left turn lanes); (ii) new signal installations; (iii) repaving; (iv) signing and striping; and (v) other low to moderate cost measures to increase junction capacity; and (c) street signing and marking. The project provides for improving road signing and marking to appropriate standards along major arterial roads to ensure better safety and traffic discipline. A standardized sign and marking system will be developed by the UTPO during the course of the project and will form the basis for all future signing and marking in the BMA area. 2.23 Construction of missing road links. The BMA has recently initiated a short-term program which calls for the improvement of 49 minor street ("soi") segments to improve road continuity. Construction of approximately ten such missing road links, generally less than 1/2 km in length, is included under the proposed project. The final selection of appropriate links (to be accom- plished by the end of 1978) will be on the grounds that they will contribute effectively to the traffic capacity of the main road system, either directly by introducing effective additional links into the frequently widely spaced network, or indirectly by providing inter-connections within large traffic generating areas. 2.24 Specifications for the missing links will be based on standards established by BMA's Public Works Department. The travel surface will con- sist of 20 cm thick reinforced concrete and will range in width between 6.0 and 14.0 meters, with typical rights-of-way being 2.0 to 4.0 meters additional in width. Traffic lane widths will ideally be 3.5 meters, but in some cases may be reduced to 3.0 meters. For those pavements 6.0 meters or less in width, - 19 - a notched gutter section flush with the pavement will be provided; wider pave- ments will have curbs. During negotiations, assurances were received by the Government that land and buildings required. for carrying out the project will be acquired by December 31, 1979. Improve Public Transport 2.25 Bus Priority Measures. To improve public transport speeds, this component will provide for: (a) reserved bus lanes (see Map 13579R). Many of the exist- ing arterial roads in Bangkok are wide enough to accom- modate special lanes for buses without severely restricting other road traffic. The proposed project would provide for "with - flow" bus lanes--totalling about 100 km--along heavily congested roads. These bus lanes will be selected and designed by the UTPO. Bus lanes will be provided along roads where traffic queues are the longest and the highest volumes of bus passengers are carried; in general this will apply to routes with over 100 buses per hour. (b) core area bus and pedestrian street priority measures. There are opportunities within the core area of the city, where the streets are spaced closer together, to institute measures giving higher priority to buses and pedestrians, and lesser priority to private cars. Under the proposed project, it is anticipated that these measures will include the narrowing of roadway widths to permit the widening (or inclusion of) side- walks, and other special measures such as physical barriers and special channelization to give buses priority or exclusive use of selected street segments. Final design of this project element will be the re- sponsibility of the UTPO, assisted by the technical assistance provided under the project; (c) extended bus bays. At present, bus bays are too short, and buses are forced to queue to reach a single stop. The project would include about 40 extended bus bays, allowing dispersal of stops at these bays so that buses with different destinations will have separate stops. These bays will be provided in those locations where at least 50, and most likely over 100, buses stop in one hour; and (d) bus shelters. Recognizing the lack of suitable shelter from rain and intense sunlight at several heavily used locations 100 bus shelters will be provided as part of the project. - 20 - Policy Measures Designed to Discourage The Uneconomic Use of Low Occupancy Vehicles 2.26 Introduction of Area Pricing. Even with the placement of new physical facilities (such as road overpasses), there will still be a lack of balance between the availability of road capacity and growing traffic levels. As proved by international experience, additional private cars will be attracted by the expansion of road capacity, leaving road congestion much as before, unless effective restraint measures are introduced. The proposed project will therefore include a scheme that will reduce the demand for road space by charging low-occupancy vehicles directly for the use of roads in central Bangkok. 2.27 At this stage of surveying and analysis, it would be premature to be definite about the details of the area pricing scheme to be adopted. However, the Government and Bank missions have jointly developed a set of specifica- tions and guidelines to serve as the starting poirit for detailed technical investigations. The specifications assume that a Singapore or cordon type proposal will emerge as the preferred option; this may not be the case, how- ever, and at this stage it is essential to remain flexible. The specifica- tions may be modified as technical studies proceed and as local realities become more fully understood. However, the Government has accepted the principle of area pricing (which it prefers to call "traffic restraint"), to be introduced not later than by December 31, 1980. By that time, most other project measures would have been carried out, other related road proj- ects such as the Sathorn Road and Bridge extension, the new tollroad, and parts of the middle ring road will have been completed; and public transport in Bangkok would be geared to absorb much of the modal shift stimulated by area pricing. Whatever area pricing system is finally chosen, some physical investments will be needed, including (a) clear and distinctive traffic signs, (b) physical traffic divertors and other traffic management oriented civil works, and (c) license sales outlets. Most signing would be on the approach routes to the zone, and most physical divertors would be at or near the zone boundaries to manage traffic (see Map 13578R1). Not later than June 30, 1979, proposals for an area pricing scheme will be prepared in detail by the National Traffic Board (NTB) and sent to the Bank for review and comment. During negotiations, assurances were received that an area pricing scheme mutually agreed between the Government and the Bank be intro- duced by December 31, 1980. 2.28 Parking Controls. At present, there are approximately 38,400 parking spaces in central Bangkok (see Table II-5). Approximately 14,600 spaces (38% of the total) are off-street governmental or private spaces not available to the general public. Among the remaining 23,800 spaces, only 9%, or about 2,000, are price regulated. Demand for, and occupancy of, available spaces varies considerably within the central area. - 21 - Table II-5: ALLOCATION OF PARKING SPACES IN CENTRAL BANGKOK Percent of Spaces Available Type of Spaces Spaces Percent of Spaces to General Public Available to General Public 23,785 (62%) (100%) On-street non-priced 20,505 54% 86 On-street priced 2,015 5% 9 Off-street priced 1,265 3% 5 Private and Government 14,590 (38%) - Total 38,375 100% 100% 2.29 The Government has tentatively established a number of parking policy measures designed to: (a) discourage long-term commuter parking; (b) itiprove the convenience of existing parking spaces for short term parking; and (c) increase the traffic capacity of arterial streets. More specifically these policy measures will be accomplished by: (a) institution of parking charges on a higher percentage of on-street spaces as a means of discouraging uneconomic use of street-space. As an approximate guideline, those areas within which 85% or more parking spaces are occupied during prime business hours will be priced to bring about an 85% utilization; (b) increasing on-street parking charges to discourage long term "commuter" parking and to improve availability of parking spaces for short term "convenience" parking; (c) improvement in the enforcement of parking regulations to ensure better usage of existing parking spaces and to in- crease parking revenues. These improvements will be achieved by stiff penalties and a graduated increase in fines; (d) increased use of parking attendants as a means of generating employment and improving collections. It is expected that an attendant parking system could become more effective than parking meters which have proved to be unsuccesful in Bangkok. In addition, this could provide useful employment. As an example, at a ratio of one attendant per 20 spaces, over 1,000 parking attendants would be needed; and (e) removal of on-street parking where such parking reduces the traffic-carrying capacity of arterial streets. - 22 - 2.30 A scheme for parking controls, including a time schedule for implementation, will be prepared in detail by the NTB and sent to the Bank for review and comment as part of the proposals submitted by end June 1979. During negotiations, assurances were received that such a scheme mutually agreed between the Government and the Bank will be implemented under the project. 2.31 Staggering of Working and School Hours. Surveys show that at least 90% of governmental offices located in the central area have official work hours beginning between 8:30 and 9:00 a.m. and terminating between 4:30 and 5:00 p.m. This concentration of work oriented travel is exacerbated by heavy concentrations of school travel, particularly by public transit during much of the same time period. A program of staggered working and school hours would spread bus loadings, which would improve comfort and reduce delays for bus passengers, and might also delay the need to increase the bus fleet size as transport demand increases. Accordingly the government will introduce a formal staggered work and school hour plan for all public offices and schools beginning in the central area, and will seek similar commitments from large private concerns and private schools in the same area. By June 30, 1979, a scheme for introduction of staggered working and school hours, including a time schedule for implementation, will be prepared in detail by the NTB and sent to the Bank for review and comment. During negotiations, assurances were received that such a scheme mutually agreed between the Government and the Bank will be implemented under the project. Technical Assistance and Training 2.32 The UTPO. This organization will require assistance in its admin- istration and development as well as in the detailed design of the identified policy and physical project packages. The project will entail about 120 ex- pert-months of technical assistance over a four-year period to address these needs. 2.33 In the area of administration and management, the assistance will focus on the development of technical procedures, and data collection, for analysis, design and evaluation of traffic schemes both under the proposed project and for general traffic matters in Bangkok and other urban areas in Thailand. Further, the consultants will advise UTPO on policies and measures concerning taxi, minibus and other "informal" public transport to ensure that their standards and fares reflect the demands of the travelling public. In addition, the role of mini-buses in Bangkok will be evaluated and a strategic plan developed by the UTPO and the consultants for early implementation by the Government. Finally, professional and technical staff training in traffic matters will be provided so that UTPO can increasingly carry out traffic engineering work by its own staff. At the end of the four-year period, a completely staffed UTPO would be fully competent to continue this work on its own. During negotiations, agreement was reached that UTPO will implement a staff training program in traffic engineering and traffic control mutually agreed between the government and the Bank. - 23 - 2.34 Most of the monitoring of project impacts will be undertaken by the Asian Institute of Technology under contract with the U.K. Transport and Road! ReSearch Laboratory using British Ministry of Overseas Development funds. However, it is anticipated that an additional 8 expert-months of technical assistance will be required to augment this work as well as to set up a con- tinuing traffic monitoring program within the UTPO. (See also paras. 4.09, 4.10.) 2.35 The BMTA. The project will provide about 75 expert-months of technical assistance to BMTA over a 15-month period. In addition approximately $20,000 equivalent will be earmarked for special training of BMTA staff. A Steering Committee will be established by the Ministry of Communications to supervise this assistance, which will be carried out by a Task Force headed by BMTA's Chief Executive Officer. The Task Force, including experts in traffic operations, maintenance and materials management, and finance and accounting, will review BMTA's present operations, identify areas requiring special study, and prepare preliminary reports for consideration by the Steering Committee. Agreed recommendations will be implemented and supervised by the Task Force, assisted by the consultants. While the technical assistance will cover almost all aspects of BMTA and its operations, special focus will be on traffic operati.ons, including rationalization of routes and schedules, management and management information systems, and establishment of a long-term financial policy During negotiations, assurances were received that recommendations mutually accepted between the Government and the Bank will be implemented by BMTA. 2.36 The TPD. The reorganized and strengthened Traffic Police Division needs 1:raining to cope with its responsibilities for managing actuated traffic controL and law enforcement activities under the project. During negotiations, agreement was reached that the TPD will implement such a training program mutually agreed upon between the government and the Bank. 2.37 The UTPO: Public Relations Assistance. Recognizing the pioneering and potentially controversial nature of the traffic restraint aspects of the project, the UTPO will receive approximately six expert-months of technical assistance to advise the general public on the purpose of measures to be implemented and the procedures to be followed in their implementation. 2.38 Eastern Seaboard amd National Secondary Cities Development Study. The Government will receive approximately 100 expert-months of technical assistance spread over a two-year period to prepare regional cities develop- ment projects designed to encourage development outside Bangkok and thus reduces the urbanization pressure on this primate city. The primary emphasis will be on urban development of the Eastern Seaboard (see Annex 1). During negotiations agreement was reached in principle on draft terms of reference for the study. - 24 - III. EXECUTING AGENCIES ANiD PROJECT MANAGEMENT A. Project Organization and Management 3.01 The U-JPO will be the Government agency responsible for coordination of project implementation. It will be supported by a Project Executive Com- mittee, chaired by the Minister of Interior and comprised of representatives of involved agencies, that will have the authority to make decisions required to expedite project implementation. The UTPO will review all project-related proposals by the BMA and the TPD before furnishing such proposals for Bank review. As is mentioned in para. 3.06, BMA wil:L execute all civil works under the project to be financed by the Government and the Bank. During negotia- tions, the government agreed to a division of responsibilities among project executing agencies as set out in Table III-1. B. The Urban Transportation Planning Office 3.02 The UTPO currently operates within the Office of Policy and Planning which is located within the Ministry of the Interior, but additionally acts as the secretariat to the National Traffic Board (NTB) which reports directly to the Cabinet. This arrangement, while adequate for the purposes of carrying out the project is not formally imbedded in Thai legislation. The Cabinet recently submitted to the National Assembly a draft Act on the "Systematiza- tion of National Traffic". Under this law the NTB would become the "Committee for the Systematization of National Traffic" and the UTPO would become this committee's secretariat and would be called the "Office of the Committee for the systematization of National Traffic". This proposed legislation in essence will formalize the existing arrangement. 3.03 The current staff of the UTPO, numbering about 80, is undertrained and lacks the qualifications and experience to carry out the project which will require sophisticated planning, design, and management. The UTPO will eventually require a staff of approximately 200 and will take some time to reach full capacity; it is important, however, to fill key posts early in the project cycle to assure smooth project performance. As further described in paras 2.32 and 2.33, extensive technical assistance to the UTPO over a three- year period is a key project element. During negotiations, assurances were received on minimum professional staff requirements at UTPO as indicated in Annex 2. 3.04 As the UTPO improves its staff it will be organized in four divisions, (1) transportation planning, (2) traffic engineering, (3) traffic control (in Bangkok), and (4) administration (see Chart III--2). The traffic engineering division, focussing only on Bangkok during the f-irst year, will be responsible for data collection, analysis, traffic engineering design, functional speci- fications and monitoring related to the proposed project. Final designs, preparation of bid documents, supervision of construction, and maintenance of - 25 - BANGKOK TRAFFIC MANAGEMENT PROJECT Table III-1: DIVISION OF RESPONSIBILITIES BETWEEN BMA, BMTA, MOI, TPD AND UTPO Project Activity (a) Planning, Traffic Structural Engineering Design, Design & Installation or Related Construction, Operation or Project Component Research Maintenance Enforcement Policy Measures to Encourage More Efficient Use of Available Road Capacity (i) Road Pricing Scheme UTPO BMA TPD/BMA (ii) Parking Controls UTPO BMA TPD/BMA b) (iii) Staggered Work & School UTPO MOI (c) Hours Improve Urban Management (i) technical assistance for UTPO transportation planning, project design and monitoring (ii) equipment, vehicles and TPD TPD TPD training for traffic control and traffic law enforcement (iii) noise abatement and air UTPO TPD pollution detection liv) technical assistance for - UTPO(d) Project related public relations (v) technical assistance for MOI planning regional urbani- zation Increase Capacity and Safety of Road System (i) Traffic Signalling Equipment UTPO(e) UTpO(f) TPD/UTPO(g) Iii) Road Flyovers, Missing UTpO(e) BMA Links, Street Widening, Junction Improvements, Street Signing and Marking Improve Public Transport (i) Technical Assistance to - BMTA BMTA Cii) Bus Lanes, Bus Bays, UTPO BMA TPD Bus Shelters (a) UTPO responsible for review of all project related procurement. (b) Collection of all charges will be carried out by parking attendants employed by EMA. (c) Ministry of Interior acts as agent for Government in assuring plan compliance among all central government and BMA agencies. (d) TJTPO to coordinate all public relations efforts. (e) Location, traffic engineering details, and priority to be determined by UTPO. (f) New equipment to be maintained initially under contract with equipment supplier. (g) TPD responsible for routine daily operation; UTPO engineers to have override authority. - 26 - completed works will be undertaken by BMA with traffic specifications prepared by UTPO. Through its traffic control division, the UTPO will be directly responsible for specifying, ordering and maintaining the traffic signal system and the television camera system, and for overalL supervision responsibility of traffic control center operations. C. The Traffic Police Division 3.05 The Traffic Police Division (TPD) will inter-alia be responsible for day-to-day operation of the traffic control center and directing mobile patrols to resolve urgent problems. The Division will also continue to be responsible for traffic law enforcement, including enforcement of parking and road pricing regulations, even though certain functions (such as removal of vehicles and collection of monies owed) may be delegated to non-police personnel. At pre- sent, the Bangkok Police design certain traffic imanagement schemes, but this will in the future be the sole responsibility of the UTPO. D. The BMA Public Works Department 3.06 The organization and management of the Public Works Department of BMA, which is responsible for all civil works under the proposed project, has been thoroughly appraised. It has a total staff of about 2,200 (150 engineers) and is organized into six divisions: Design, Building and Repair, Construction Control, Building Control, Land Management and Public Land, and a Secretariat. The Department is doing a substantial amount of work, and is capable of designing and constructing major works such as concrete or steel flyovers, road works, bridges and drainage. Contractors have often been used for major construction works in the past, and the Department has undertaken supervision in a satisfactory manner. The Department is fully competent to undertake the tasks assigned to it under the proposed project. BANGKOK TRAFFIC MANAGEMENT PROJECT Chart III-2: ORGANIZATION OF UTPO AND LOCATION IN GOVERNMENT STRUCTURE Cabinet Minister of Interior _~~ National Office of Policy 1 Other Offices I Traffic Board* and Planning Iwithin Ministry I (NTB) (OPP) I of Interior I I Bangkok l I Sub-committee I I (unofficial) L - _ ___ i Urban Transportation Planning Office (UTPO) Traffic Transportation Engineering Planning Traffic Control Administration *Chairman of NTB is Minister of Interior - 28 - IV. PROJECT IMPLEMENTATION A. Implementation Schedule 4.01 The project would be implemented over a 3 year period (1978-81), as shown in Table IV-1. Equipment procurement and installation under the project would be completed by July 1980, and civil works related to physical components would be completed by January 1981. All policy measures would be implemented by December 1980. B. Procurement 4.02 Contracts for equipment totalling about: $1.5 million will be awarded on the basis of international competitive bidding in accordance with Bank guidelines. A margin of preference equal to 15% or the customs duty, whichever is lower, would be granted to local manufacturers. Smaller equip- ment contracts totalling about $500,000 equivalent, which would not be attractive to foreign bidders, will be awarded on the basis of competitive bidding advertised locally. Approximately $1.7 million worth of traffic signal equipment is recommended.for sole source procurement (see para 4.03). 4.03 The Government signed, on June 28, 1978, a contract with Traffic Engineering Systems (TES) Ltd., a Thai company associated with GEC-Elliot Traffic Automation, U.K., for procurement and installation of a traffic con- trol system in Bangkok. The contract, estimated total value $1.7 million provides for completed installation by June 1979. This contract has not been awarded on the basis of international competitive bidding, but based on a proposal by GEC, who have supplied and installed almost all existing traffic signals in Bangkok. The appraisal mission has carefully reviewed the contract and has concluded that the equipment offered is appropriate for the required system and that the foreign exchange component of the contract (corresponding to about $0.9 million) is reasonable for the equipment offered. The Government committee that negotiated the contract is satisfied that the local cost por- tion of the contract is reasonable. By awarding this negotiated contract, the Government will achieve the principal advantage of time saving of up to two years, due to the complexity of drawing up detailed but fair specifications. 4.04 It should be noted that in addition to the above traffic signal control system, modernization of about 70 existing signalized intersections and about 20 new signal installations at intersections currently not served and located outside the central area of Bangkok, would also be part of the proposed project. This equipment is estimated to cost about $0.8 million. Procurement of this equipment is less urgent and, consequently, the Government intends to award the corresponding contract on the basis of international competitive bidding, in accordance with procedures consistent with those of the "Guidelines." 4.05 In view of the above circumstances, it is recommended that the Bank finance the foreign exchange component of the TES contract, estimated - 29 - BANGKOK TRAF'1C MAN\iAGEAME','T PFJ:JECT Table IV-1: PROPOSED PROJECT SCHEDUiLE 1978 1979 1980 1981 Project Thrust Project Element _ -_ - _ 1- 4-6i1- 7-9 1 3 4-5 7-9 101 < 6 1-12 1-3 4-6 A. Strerigthen 1. Police Equipment _ Urban Management 2. Traffic Monitoring Equipment 3. Noise Abatement Enforcement __i_ _ _ _ B. Increase 1. Area Signal Control System _ Capacity of Road 2. Existing Signal Modernization m Ian 1!1 Network i i - 3. Signalize Nevv Junctions IN __ 5 ____ 1 ____ __I_ _ _ nuous I 4. Road Flyovers Firstl _ _ _ _ _ | ~~~~~~~Last | 1 b-z g 4 D _^ -4| 5. Street Widening and Related a I I I_ I a I I * Improvements - First O m sen=I 6. Junction Improvements Last . , aamia ngn# si 7. Street Signing and Marking s i mimle 8. Missing Street Lin'~' _.V , '"'A~ rv | /!/ // f ;DonM /THAILANED /tdd I .~*d u,.>Nge~,Ol t 17 i t A 14 Bangkok Traffic Managernelit F'ruIect F/Frnawornf sChno˘/enarss < ? avvos / / . 0 / \ \ 8 i Proposed Bus Lones . D --$ t._ (l/ t / l \ ,)x~~~, ' -T- -.-. Es JeTOT.eG; ne U F~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~r pE 4411. I Ie I .R~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~P '4- ~ ~ ~ ~ ~ ~ ~ ~ ~ ~~~~~~I o I~~~~~~~ ANI BAGK- MER ',IEIS4F R..3~~~~~.44 7~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~AT ---- -- ----- ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ 2