Rickshaw restrictions in Dhaka and the role of World Bank (Press statement)

Events related to the implementation of rickshaw restrictions in Dhaka

and the role of the World Bank

 

 

 

Under the Dhaka Urban Transport Project (DUTP), the government has been taking measures to improve urban transport infrastructure and services, and to address long-term transport planning, coordination and institution development in Dhaka. The project has brought about significant improvements in air quality by supporting the conversion from polluting two-stroke to cleaner four-stroke three wheelers.  It has built some 175 km of pedestrian footways, resurfaced 20 km of complementary non-motorized traffic roads and crossings, improved 63 km of arterial corridors, and is in the process of installing traffic signals at 69 junctions and rehabilitating three major inter-district bus terminals. It is strengthening the national vehicle registration and driver licensing system. It has undertaken a review of the regulatory framework for public transport, drafted a policy for enforcing parking restrictions, and is piloting bus route-franchising approaches to improve bus services. It is also developing an urban transport policy and a long term strategic transport plan for Dhaka which will include a broad-based consultation process.

 

The World Bank’s role under the DUTP has been to provide financing and technical assistance to help the government with the development, refinement and implementation of appropriate strategies for managing road traffic and services in Dhaka. We believe that a holistic approach encompassing the key elements discussed above, is essential for their success and sustainability. We agree that non-motorized transport is and will remain an important component of Dhaka’s transport system.  

 

 

1.       During 2002, the Committee for Integrated Corridor Improvements appointed by Dhaka Transport Coordination Board (DTCB) identified a preliminary network of 120 km of core arterial roads in Dhaka for phased conversion to non-motorized transport (NMT)-free operations[1]. This was supported by DUTP as part of a broader strategy to overcome the prevailing grid-lock and improve traffic flow and overall mobility for the traveling public, by allowing more efficient operation of motorized traffic - primarily public transport - along these routes. The strategy envisioned the simultaneous development of a complementary network of NMT routes in consultation with NMT owners and operators; the provision of substantially enhanced public transport services; effective enforcement of parking prohibitions along these corridors, and the mitigation of any adverse impacts.

 

2.       An incremental approach was deliberately adopted to the conversion to allow government  to test, evaluate and refine this approach over time, and to introduce appropriate mitigation measures. 

 

3.       In December 2002 implementation of NMT-free operations commenced with conversion of the ‘demonstration’ corridor along Mirpur Road (Gabtali-Russel

 

 

 

Square-Sonargaon). Traffic surveys following the introduction of NMT restrictions in the demonstration corridor indicated improved traffic flows and a reduction in the number of traffic accidents. 

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4.       In April 2004 the Government of Bangladesh adopted the National Land Transport Policy. This proposed a progressive ban on the use of rickshaws on major arterial roads in Dhaka, together with measures to encourage rickshaw use in suburban areas and as feeder services to the bus network.

 

5.       In July 2004 early results of an   impact evaluation of the conversion of the demonstration corridor shared by DTCB with the Bank, showed that the majority of transport users surveyed supported a continuation of the conversion policy – indicating that the overall impacts on transport users were largely positive. It reduced average travel time by about 30%. Commuters using walking and buses reduced their transport cost, but it increased for others 2. However,

 

q              There was a significant loss of income for affected rickshaw pullers that needed mitigation.

 

q              There was a shortage of buses on the corridor[2].

 

q              Survey and stakeholder consultations on the proposed phase 2 NMT-free corridors indicated that if adequate and women friendly bus services were available and pavements were cleared and made secure, taking buses/walking would not create additional hardship for daily commuters, especially for women as their commuting cost and time will be reduced by motorized transport.

 

6.       These results appeared to provide a basis for continuing with the further implementation of this approach, with appropriate mitigation measures, as part of an integrated NMT management strategy for Dhaka.

 

7.       In response to these findings, DUTP supported the undertaking of  a census survey to identify disadvantaged rickshaw pullers operating on these sections of the road and the Bank indicated its support to finance a package of support measures to mitigate the loss of livelihood for this group, from the DUTP Credit. The   census survey was completed in late November 2004. Since late 2004 DTCB has been working to develop the details of this package. We are told that this will be presented to the government soon for review and approval.

 

8.       End of November 2004 the full impact assessment report was made available to the Bank[3]. This raised certain doubts about the earlier results provided to the Bank

 

 

 

 

regarding the overall impact of the conversion [4]. We are seeking clarifications, but it does appear that further work will be needed to draw definitive conclusions about the net impact of the conversion on all types of users. 

 

9.         In view of this, on Dec 10, 2004 the Bank wrote to the government explicitly requesting   implementation of the necessary safeguards and mitigation measures prior to undertaking any further conversion. These included:

 

q              adequate consultations with key stakeholders and those affected,

q              provision of alternative/ complementary NMT routes for network continuity or for access to specific destinations (e.g. hospitals, markets, schools, etc.);

q              implementation of a package of remedial and support measures for disadvantaged and displaced rickshaw pullers and owners whose livelihood is adversely affected;

q              provision of additional bus services, and enforcement of parking prohibitions along these corridors, etc.

 

10.   On December 17, 2004 the government converted a second section of Mirpur Road (Russel Square to Azimpur) to NMT-free operations.

 

11.   In a January 13, 2005 letter, in response to the Bank’s inquiry about the status of necessary safeguards and mitigation measures, DTCB indicated that the government had implemented various measures prior to the conversion[5]. These measures will be carefully assessed by the Bank team during the planned February 2005 DUTP supervision mission. However, the Bank has advised the Government of its strong concerns about the following aspects of the recent conversion.

 

q       The lack of appropriate safety nets being in place prior to the conversion to mitigate the   resulting loss in livelihood for disadvantaged rickshaw pullers and owners.

 

q       The insufficiency of alternative public transport services provided in the corridors where the restrictions have been implemented, to effectively mitigate the adverse impact of the ban on the traveling public.

 

12.   Specifically, in February 2005 letters to the government, the Bank has informed the government that it can only support their plans for the development of NMT-free arterial corridors of Dhaka if (i) it is clear that the aggregate benefits of the NMT

 

restrictions on stakeholders outweigh the aggregate costs, (ii) the adverse impacts of the conversion - particularly on poor and vulnerable groups – are appropriately mitigated and (iii) the approach has broad stakeholder support.  The Bank cannot support continued conversion until the government has carried out mitigation measures to adequately reduce the negative impacts and alleviate public concerns. These mitigation measures may include:

 

q       For displaced rickshaw pullers and owners: Implementation of a safety net to compensate for loss in livelihood, comprising elements such as: (a) asset transfer; (b) micro-credit and enterprise training support; and (c) skill development, micro-enterprise and job placement support; and

 

q       For Affected Transport Users: Proactive measures to improve disrupted transport services, such as: (a) issuing sufficient additional route-permits along the corridor to private sector operators for provision of modern large buses operating scheduled services - with designated sections for women passengers; (b) some bus route rationalization to minimize the need for multi-modal trips; (c) enforcement of parking restrictions and some bus-prioritization measures; (d) provision of designated bus-stops with shelters for pedestrians; (e) keeping the side-walks along these corridors free of encroachments for safe passage of pedestrians; (f) designating some NMT routes adjoining the converted roads for ‘NMT use only’ by restricting motorized vehicle access; and (g) re-establishing NMT-network continuity where this has been severed.

 

 

13.   We have also indicated that it is very important that DUTP be fully compliant with Bank safeguard policies if the government wishes to see continuing Bank engagement in the sector in future.