Country Report - UKRAINE

Transcription

1 Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized Country Report - UKRAINE Review of road safety management capacity and proposals for a short to long-term investment strategy Final - 26 th June Eric Howard VicRoads International Jeanne Breen Jeanne Breen Consulting

2 1. Introduction 1.1. Background The road safety situation in Ukraine is serious and deteriorating. In the context of substantial and continual administrative and political change since independence, rapidly increasing freight and passenger traffic volumes, weak road safety management and significant relaxation in traffic regulation enforcement and compliance with key road safety rules, the risk of death and serious injury in Ukraine s road traffic system is high and costly in socioeconomic terms. The current number of deaths in road traffic crashes is similar to the 1980 level which rose to over 9,600 deaths in 1990, fell to 5,269 deaths in the next decade and then increased again to 7,238 deaths in 2005, this total representing a 27% increase since Road death rates in Ukraine are around 10 times higher (per 1,000 vehicles), 12 times higher (per billion kilometres) and 3 times higher (per 100,000 population reflecting relatively low motorization levels) than the best performing country in Europe. Only the Russian Federation, and countries in the Balkan and Caucasus regions have higher death rates in Europe than Ukraine. Around 50% of fatalities are car occupants, 42% of fatalities are pedestrians with the remainder being mainly two-wheeled vehicle users 1. The socio-economic costs of road traffic crashes nationally have been estimated by the Ministry of Transport and Communications at between 1.4% and 3.5% of GDP (using two different methods of calculation) 2. The sharply increasing trend in motor vehicle traffic car traffic is rising by around 7% a year and heavy goods vehicle traffic by 10% 3 - is likely to continue into the future. Unless effective measures are put in place, Ukraine s current serious road safety situation is set to deteriorate further. Against this challenging background, road safety is becoming an increasing priority for policymakers in the country s desire for transition from pre-soviet administration systems towards European transport norms. Ministers promote Ukraine s sign up to UN Assembly road safety resolutions, take up of ambitious European casualty reduction targets to reduce deaths by 50% by the year 2012 as well as Ukraine s aspiration towards best European practice in road safety. Road safety management responsibilities of key stakeholders are under discussion within government and a new multi-sectoral co-ordinating body has recently been established to bring together the key government stakeholders at Ministerial level. The Minister of Transport and Communications announced to the Dublin Council (May 2006) that a new national programme on road safety in Ukraine for was under preparation. The Ministry of Transport and Communications has prepared an intergovernmental discussion paper with the aim of addressing the weaknesses of the ineffective, obsolete system of road traffic safety management which is functioning in Ukraine 4. The review team is in agreement with many of the conclusions of this discussion paper and its content has been taken fully into consideration in this review of road safety strategy in Ukraine. The review team s summary assessment of the paper is attached in Annex The road safety review The main objective of this road safety review is to set out a strategy for the short to long term to address the serious road safety situation in Ukraine. Its purpose is to guide future World Bank investments, based on a review of country road safety management capacity and 1 Police data, Concept of Improvement of Road Traffic Safety in Ukraine, Ministry of Transport and Communications, Transport Sector Review Ukraine The Netherlands Transport Platform Trust Fund (TF050195) Final Report ECORYS Transport Rotterdam, 10 October Concept of Improvement of Road Traffic Safety in Ukraine, Ministry of Transport and Communications,

3 taking account of other activity in this field carried out by other international organizations with programmes in Ukraine. Section 2 outlines the findings of the road safety management capacity review. Section 3 presents the short to long term strategy prepared in response to these findings and developments. Section 4 outlines a short term action plan. Section 5 presents an assessment of the revised operational guidelines for road safety capacity review based on the review activity in Ukraine and Armenia in May-June Annexes 1-7 are appended Ukraine s development objectives and international partnerships Ukraine s development goals Ukraine adopted in 1998 a Strategy for European Integration. In early 2002, President Kuchma declared EU membership a long-term goal, with Ukraine aiming to fulfill the relevant criteria for lodging an application by 2011.Within the framework of its goal European Choice, the Government of the Ukraine has outlined the following seven long-term objectives for future development: (i) Sustainable Economic Growth; (ii) Poverty Reduction and the Strengthening of the Middle Class; (iii) Comprehensive and Harmonized Human Development; (iv) Environmental Sustainability; (v) Gradual Integration into the World Economic and Financial Systems; (vi) Reduction of Regional Imbalances; (vii) Improvement of State Administration. World Bank Country Assistance goals Taking account of these objectives the Mission Statement for the Bank s strategy in Ukraine for is to assist Ukraine in building institutions necessary for sustainable and equitable growth and for poverty reduction; to support Ukraine s aspirations with regard to increasing integration with the EU and with the WTO and to help provide Ukraine s citizenry greater voice and to foster stronger government accountability 5. World Bank s Transport Strategy and Road Safety World Bank recommendations on global road safety management are set out in the World Report on Road Traffic Injury Prevention 6 which it co-produced with the World Health Organization and its follow up guidance on implementation activity in the Transport Note TN-1 7 and its draft revision. The establishment of the Global Road Safety Facility and the Bank s stated aim in its new transport strategy in pursuit of a safer, cleaner and affordable road transport system underlines its commitment to play a leading global role in road safety. European Union initiatives The European Union-Ukrainian Action Plan supports Ukraine s objective of further integration into European economic and social structures and envisages the adoption and implementation of an action plan for improving road safety. 8. Under the TACIS assistance programme for Ukraine there are several projects supporting these goals in transport and road safety. These include accession of implementation by Ukraine of international conventions and agreements on transport; integration in TEN- Transport; and a road safety twinning project foreseen for 2006/2007. Ukraine has also chosen road safety as the subject of a broader EU-funded governance project which is currently underway. A new Country Strategy Paper is in draft which is expected to outline further plans for further integration in transport including road safety. 5 World Bank, Memorandum of the President of the International Bank for Reconstruction and Development and of the International Finance Corporation to the Executive Directors on a Country Assistance Strategy for Ukraine for , Report no uam September 29, World Report on Road Traffic Injury Prevention eds. Peden et al, WHO, World Bank, Bliss A, Implementing the Recommendations of the World Report on Road Traffic Injury Prevention, Transport Note No. TN-1, World Bank, Washington DC, April European Union-Ukrainian Action Plan , Brussels,

4 ECMT/OECD initiatives Ukraine is a member of the European Conference of Ministers of Transport and adopted the ECMT acquis upon joining the organization. In terms of road safety, this involved the signing up to the aspirational target to reduce deaths by 50% by the year 2012 and adoption of various road safety resolutions. EBRD and EIB initiatives EBRD has prepared a new country strategy focussing on infrastructure, financial sector, corporate organizations and small to medium enterprises 9. There are no specific road safety programmes or projects but safety issues have been addressed in relation to specific road projects through incorporating safety measures at detailed design and tender stages. EIB has extended its activities to include Ukraine, with an initial two-year facility of EUR 250 million to be approved in association with EBRD and TEN projects. The road safety investment strategies will need to take account of the development priorities and explore opportunities with existing international strategic partnerships and programmes, particularly with the European Union. For example, achieving the first objective of sustainable economic growth will be accompanied by a large increase in traffic and exposure to risk in the road traffic system. Motor vehicle traffic is forecast to double over the next 10 years. While successful poverty reduction will reduce the high road safety risks faced by especially vulnerable road users such as children and the elderly, the loss of the main wage earner in road traffic crashes will push families into poverty. Children from the lowest income groups are 5 times as likely to sustain fatal and serious injury in road traffic than other groups 10 and children are present in over half of families below the poverty line in Ukraine. One aspect of comprehensive and harmonized human development will be served by improving the capacity of citizens to understand the risks they face in the traffic system and how they can be reduced. Synergies between environmental sustainability and road safety will be found in motor vehicle speed management. Gradual integration into the world economic and financial systems will be assisted by application of cost benefit and cost effectiveness analyses in the public sector, which are important to deliver best value countermeasures to road crash injuries. The strategy will also need to take account of reduction of regional imbalances in road crash injury risks and their reduction and address the institutional arrangements in the improvement of state administration which underpin effective road safety management Road safety strategy review process A five step process was used to conduct the safety strategy review in the Ukraine. Step 1: Appraise current safety practices and outcomes. An on-site review of road safety management capacity was carried out on behalf of the World Bank between 22 nd May and 2 nd June by Eric Howard and Jeanne Breen of VicRoads International and Jeanne Breen Consulting in association with the World Bank Kiev Office and with co-ordination assistance from Uktravtodor the State Highway Authority in Ukraine. Meetings were held with Government stakeholders and international organization as outlined in Annex 1. The review team was asked to assess the road safety management capacity of Ukraine using international best practice as a benchmark. This involved using operational guidelines provided in World Bank Transport Note 1 (revised draft in outline). Taking into account some additional elements including the draft road safety management guide being produced 9 European Bank for Reconstruction and Development, Strategy For Ukraine , May Roberts I and Power C (1996). Does the decline in child injury mortality vary by social class? A comparison of class specific mortality in 1981 and British Medical Journal 313,

5 for the World Bank, the appraisal checklist of TN-1 was used to assess country capacity in terms of system and effectiveness to provide a diagnosis. Effective safety management of the road traffic system is characterised by three key strategic elements: clearly defined safety performance targets which are challenging but achievable, a comprehensive framework of integrated interventions across the system and effective implementation arrangements involving key stakeholders which comprise appropriate and efficient organisational structures and processes. The system capacity review appraises road safety management along the three international best practice dimensions: results management, interventions and implementation (taking account of structure which relates to institutional organisation and processes and culture which concerns how things get done in the country) The effectiveness capacity review tries to assess where the country is in terms of its road safety development. It requires consideration of the social cost densities of networks, and where the greatest concentrations of crashes and related deaths and injuries occur, because it is in these corridors and areas that the most potential for accelerating effectiveness occurs. The first phase involves a slow accretion of capacity and the second phase sees capacity improving rapidly which broadly coincide with 1 st and 2 nd Generation projects. 1 st Generation Projects are usually part of a road construction project. 2 nd Generation are usually standalone projects. The diagnosis of a country safety management system and its effectiveness represents professional appraisal of the state of readiness in a country to move from 1 st Generation Projects to 2 nd Generation Projects. Step 2: Set a vision The vision set for the purposes of the review was that in fifteen years time Ukraine would have in place a robust safety management system that produces high quality safety outcomes on a controllable and sustainable basis. This vision acknowledges that to achieve parity with best practice safety management systems is going to take sustained effort over a long period of time. However, it is recognized that with sufficient commitment and ambition this vision could possibly be achieved more quickly. Step 3: Determine phasing of developments. To achieve the specified vision, three phases of development of the safety management system for Ukraine were identified over the fifteen year period. These were defined as the establishment, growth and consolidation phases. Step 4: Set strategic priorities for each phase. These were set for the strategic elements and related dimensions. Step 5: Propose a short term and long term investment package to launch and further develop the strategy. 5

6 2. Capacity review findings 2.1. Summary System capacity for road safety management Several positive steps have been taken in Ukraine towards the establishment of a new road safety management system. Strong political commitment exists for improving road safety outcomes to achieve levels of performance consistent with good European practice. The shared governmental responsibilities for road safety are acknowledged and a new horizontal co-ordinating mechanism has been established. Established arrangements exist across the country to allow enforcement, infrastructure, vehicle and trauma care to be upgraded relatively quickly with improved knowledge and resources. In the transport and justice sectors, in particular, reasonable staff capacity exists for further engagement in road safety. The socio-economic cost of road traffic crashes has been quantified. Despite these steps, however, road safety performance management across government is ineffective, implementation arrangements are weak and interventions are fragmented. Many practitioners acknowledged that approaches need to change. This is exemplified by the Concept paper on improving road safety outcomes, prepared and circulated by the Ministry for Communications and Transport for discussion across Government in recent months. The management responsibilities and accountabilities of different government departments for road safety are not yet clearly defined and no one Government Department is providing an effective lead to activity. Furthermore, Ukraine has signed up to a highly ambitious European target which is not achievable. While a national programme for road safety exists, it has not clearly identified the key problems on the basis of crash injury analysis, set achievable or realistic targets, or agreed upon a set of well-co-ordinated actions. There is a serious lack of expert capacity, resources and skills in road safety within the responsible agencies and across government which is acknowledged by the key stakeholders. Results focus While it is clear that there is political will to improve Ukraine s road safety performance, no systematic analysis has been conducted to see what could reasonably be achieved. Apart from final outcomes, no measurement is carried out of safety performance including key road user behaviours. Crash injury data systems and road system registries in health, justice and transport sectors urgently need to be enhanced to allow shared use and better correlation between sectors to enable crash injury problems to be identified and understood. Challenging but achievable final outcome targets need to be set. Intermediate outcomes need to be identified. Estimates of the costs of the socio-economic costs of road traffic crashes have been made. Interventions A legislative framework is in place which sets out the conditions of entry and exit of drivers and vehicles to the road network but this will need to be upgraded in line with best European practice. Similarly there is much potential for national road and vehicle standards and safety methodologies (including safety audit and safety rating systems) to be introduced or upgraded to good European practice in the short term and best practice for the longer term. With some notable exceptions, key safety rules are in place for the use of the system, but compliance is very low. There is no mandatory third party insurance. There is a lack of management capacity in the road user behaviour field which constrains the ability to identify and implement behaviour-related policy improvements. The need for improvement in access to the pre-hospital medical system and the introduction of a trauma care system as recognised in international best practice is acknowledged. 6

7 Implementation structure and culture Leadership of road safety in Ukraine is currently lacking and new arrangements need to be put in place to develop capacity which can deliver understanding of the road safety problem (without emphasis on blame) together with evidence-based and data-led strategies and countermeasures. While road safety management problems have been identified by government, working relationships across government, both vertically and horizontally, are poor and currently impede progress. Against the background of very poor public respect for traffic law, effective multi-sectoral working relationships need to be established urgently at senior managerial level, Director level and Ministerial level. A national road safety strategy is needed to set out clear management responsibility on the part of the different government agencies and to provide for effective co-ordination arrangements with a dedicated secretariat. Road safety funding arrangements are inadequate and lack transparency. In general national capacity for dedicated road safety research and development barely exists. The review s findings of system capacity for road safety management across these results management, interventions and implementation (structure and culture) dimensions are outlined in Table 2.1. Effectiveness Ukraine is in the first phase of effectiveness. While there are well-intentioned activities, overall, there is little useful analysis in transport, police and health sectors of the risks in the road traffic system and, in general, an absence of multi-sectoral understanding as to where the priority areas for action lay. Diagnosis Ukraine is at the start of its long road safety journey, but with new political will that ensures accountability, effective multi-sectoral co-ordinated activity, enhanced results management and effective knowledge transfer, it has the potential to move quickly into its next phase. It has the capacity to take on a 2 nd Generation road safety project. 7

8 Table 2.1. Strategic review of road safety management capacity in Ukraine Results focus Strategic review Final safety outcomes costs, fatalities and serious injuries Intermediate safety outcomes Safety programme outputs The socio-economic costs of road traffic crashes nationally have been estimated by the Ministry of Transport at between 1.4% and 3.5% of GDP (according to different methods of calculation). Health sector surveillance does not identify the full extent of road injuries and deaths or the classification of road traffic injury. Therefore, any levels of under-reporting in the police system cannot be determined. One official indicated that the level of pedestrian deaths and serious injuries was probably underestimated by about a third. There are no agreed nationally set headline targets, although Ukraine has signed up to an ECMT fatality reduction target to reduce deaths by 50% by The Ministry of Transport and Communications supports a similar EU target. There are no intermediate outcome targets for speeds, helmet use, seat belt use and drink driving and these behaviours are not measured. There is, however, a target for ambulance response times in the emergency medical system. There are no agency output targets. Interventions Design and operation of road network Conditions of entry and exit to the road network for vehicles and users Compliance with safety standards and rules in the road environment Road standards In general, national standards, rules and guidelines governing the safety of much of the municipal, urban and rural network have not kept pace with international best practice in road safety engineering. While most roads are paved, the road safety quality of roads is low in many areas. Highway authorities lack the knowledge and experience to engage in comprehensive accident analysis and to effectively translate the results of this analysis into targeted measures that can improve road safety. For example, on one state highway, the road accident frequency and fatal accident level is significantly higher (over 10 times) than those in comparable EU countries. There appears to be limited understanding and practice of road safety engineering and speed management in road design, layout and operation. There is safety inspection of the network to check compliance with national standards and rules, but no safety audit for new projects as understood by the international road safety engineering profession. There is a modest national programme on remedial treatment mostly at single high risk sites which is funded by the maintenance budget but does not involve rigorous cost-benefit analyses to rank projects. Vehicles The safety standards of nationally produced vehicles are very low and are acknowledged to be such. Ukraine signed up to 83 UN ECE arrangements for vehicle safety in This should be seen as an interim step towards adoption of superior EU vehicle standards for front and side impact protection and pedestrian protection. There is little road safety input into standards work. There seems to be little interest in developing or promoting consumer information on new car safety ratings. A privatised HGV and bus inspection system is being introduced. Users The driver and rider training, testing and licensing systems require modernisation in line with European Union country practice. The age of access of 16 to a provisional motorcycle licence and 14 for moped riders is lower than in good practice countries. Users While there is good staff capacity, the enforcement system is effectively inoperable leading to high-risk road user behaviour which has been encouraged by the removal of key deterrent sanctions and high-level Government concern about aspects of traffic police operations. Enforcement of key safety rules e.g. speed limits, seat belts and drinking and driving (which are now rarely enforced) has diminished as a consequence of high-level efforts to contain public disrespect for law enforcement. Emergency medical services Implementation structure and culture The quality and coverage of the emergency medical system is low and under-resourced both in human and financial terms. There is no established trauma system. Leadership, coordination and high level promotion There are signs of new political aspiration for road safety work in Ukraine towards good European standards and practice. In the absence of well-defined responsibilities for road safety, there is currently a lack of 8

9 leadership, effective co-ordination and promotion in road safety work in Ukraine. At the same time, and against the background of significant challenges since independence such as fundamental administrative change, increasing traffic volumes reflecting economic growth, there is limited understanding of the road safety risks in the system, the options for intervention, and priority first steps amongst the key stakeholders who need to work together in road safety. The functions of regulation and ensuring compliance are not separated in the current lead police agency where a find the person to blame culture tends to predominate and, in the absence of highway authority participation, data is not analysed in a way which focuses on the full range of crash and injury causation factors. It is understood that the state highway authority (and urban administrations) do not have responsibility for determining speed limits on the network which is atypical of most international practice and inconsistent with responsibilities for road design, layout and operational management. Working relationships between key central Government Departments in road safety are, in general, difficult or non-existent and offer significant opportunity for improvement as outlined by a Ministry of Transport and Communications concept paper. This outlines the need to re-allocate and specify road safety responsibilities and accountabilities across Government agencies in legislation and has been presented to Government for consideration. A co-ordinating Commission (without secretariat) has been created recently under the Chair of the Deputy Prime Minister which is a positive initiative. However, it is likely that a much smaller group of Ministries would be able to provide focussed co-ordination and management of road safety in Ukraine. Legislation There have been a variety of road safety acts since independence. However, revised management frameworks for licensing, testing, training and inspection regimes are envisaged but are not yet in place. Some safety rules are established but there are important exceptions e.g. urban speed limits do not reflect good practice (60 km/h compared to a 50 km/h or lower which is normal European practice. There is no random breath testing or evidential breath testing machinery. There is no crash helmet law or licensing requirement for moped riders and there is no penalty points system for drivers and riders. A system of strict penalties, such as licence withdrawal and vehicle impoundment commonly found in Europe, was disbanded in 2001 which has severely undermined public respect for road safety rules and their enforcement. Fines are considered to be token neither providing a deterrent nor reflecting relative road safety risks. There is no mandatory third party insurance. Resource allocation Problems of insufficient finance were reported as the reason why the main elements of the current road safety programme have not been implemented. Projects are not being identified appropriately or prioritised in order to maximise scarce resources. Cost benefit and cost-effective analyses are not used. Funding mechanisms While there is a specific road safety funding line in the Ministry of Transport and Communication s Road Fund allocation, the interpretation of what road safety activity comprises is too narrowly limited to road maintenance and road infrastructure upgrades as opposed to targeted road safety projects which could be identified and which will have higher socio-economic benefits. Allocations for road safety programmes have been minimal. Monitoring and evaluation Research and development and knowledge transfer Parliamentary relations Non-governmental organization engagement Road accident data is collected by the police and it has not been possible to comment on its quality. There is no GIS linked database. There is not a robust tradition of sharing detailed data between police and highway authorities and urban administrations and this is a substantial constraint on effective management and monitoring of the road network by those authorities and administrations and their acceptance of responsibility. There is no tradition of in-depth crash investigation. The only national capacity for road safety research is in central government which is overstretched, under-funded and struggling to cope with the demands of a rapidly changing environment. Against the background of political change, it is understandable that road safety arrangements such as the existence of an all-party road safety committee of the Parliament is not yet on the agenda. Against the background of the recent development of civil society, limited NGO activity and interest was evident. 9

10 3. Strategy 3.1. Vision In developing a road safety strategy for the longer term it is important to have a vision of where a country would like to be by the end of the planning horizon and a clear understanding of how its achievement would be recognized 11 The review findings indicate that Ukraine faces a significant challenge in its goal to create acceptable levels of safety in its road traffic system. The proposed strategy sets out a sequence of priorities to be addressed over three 5-year phases to achieve the following vision: Within 15 years, Ukraine will build a robust road safety management system that produces best practice road safety outcomes on a manageable and sustainable basis. In pursuit of this vision, the focus is on building institutional capabilities in transport, health, education and justice sectors and creating the supporting partnerships within central, regional and local government, communities, non-governmental organizations and the private sector that are critical to achieving positive and sustainable results Strategic phases and priorities Short term (next 5 years) The establishment phase involves establishing which government departments are responsible for different elements of the safety of the traffic system taking into account setting standards and achieving compliance with land use planning, road design and operation, vehicle standards, and user standards for managing exposure to risk, crash prevention, crash protection and post impact care. The priorities are to commence performance measurement for key indicators, extending data collection and introducing greater data sharing; building data analysis and knowledge capability to identify priorities for intervention development and for the roll out of strategies and measures for the next phase; and reviewing legislative, funding, research and development and co-ordination requirements. This could be achieved under the direction of the National Road Safety Commission comprising the co-operation of key agencies at Chief Executive and senior management levels in committees under a supervisory Ministerial Council supported by a newly adopted lead agency (See Annex 3) Medium term (next 10 years) The priorities for this growth phase are to establish a robust performance management framework for all participating agencies, to implement the findings of all short-term reviews and to roll out targeted safety programme systematically across the country Long term (next 15 years) The key priorities are to further roll out safety programmes and devolve the performance management framework to regional and local levels; to improve management and operational efficiency; to upgrade safety programmes and to research future countermeasures. In response to the capacity review findings outlined in Table 2.1, priorities for each strategic phase are further outlined in Table Bliss A, Transport safety strategy review, Socialist republic of Vietnam, World Bank, Washington, July

11 Table 3.1. Strategic priorities for the short, medium and long term in Ukraine System elements Results focus: performance targets Intervention s Final outcomes Intermediate outcomes Output measures Design and operation of road network Strategic priorities Short term (next 5 years) Medium term (next 10 years) Long term (next 15 years) Against the background of European aspirational targets: Agree types of final outcome indicators and establish measurement mechanisms. Extend crash injury data collection to produce more useful data for multi-agency use. Introduce greater data sharing between police, highway authorities and urban administrations. Build data analysis capability to identify priorities for intervention development Set challenging but achievable targets as soon as possible for the long term road safety strategy for the reduction in : - numbers of deaths and serious injuries - deaths and serious injuries per vehicle - deaths per population Identify and establish measurement of key safety performance indicators. Set national and regional targets for the long-term road safety strategy Formally review and publish progress with national targets every three years and include independent assessment of progress and future potential Monitor intermediate outcome targets Establish institutional road safety outputs. Set national and regional targets for the Police and the Ministry of Transport. Upgrade road safety engineering knowledge and capacity to allow: o highest risk network locations to be identified at sites, specific route lengths and on an area-wide basis; o guidelines for low cost/high return engineering treatments to be upgraded or developed; o safety standards, compliance requirements, road safety audit policies to be updated; o understanding of safe system approach. Priority treatments/locations to be identified and highest benefit/cost ratio locations funded to reduce fatalities and serious injuries. Review and reduce urban road speed limits. Pilot multi-sectoral countermeasures for highest risk lengths and area-wide locations in urban and rural areas (See later section too). Review and address land-use planning and traffic management issues which are a genuine safety risk e.g. impact of roadside commercial development, bus stop locations, intersection line markings and relevant signing. Crash rates for all major roads and for different types of road identified for the network. Multi-sectoral countermeasures rolled out nationally for highest risk lengths and area-wide locations in urban and rural areas. Apply road safety audit processes to all new projects with a value in excess of 2.0m Uah. Review urban and rural hierarchies to achieve a better match between function, speed and road layout and pilot with demonstration projects. Devolve components of targets to regional level. Incorporate components of targets in key agency employment performance assessments. Set local targets. Set local output targets. Review experience of previous 10 years and revise design and operation procedures accordingly. 11

12 Implementat ion arrangement s structure and culture Conditions of entry and exit of vehicles and users to road network Compliance with safety standards and rules in the road network Emergency medical services Leadership and coordination Benchmark effectiveness of current driver preparation and licensing arrangements to good European practice. Examine driving experience requirements prior to licensing. Review vehicle standards arrangements for light and heavy vehicles against best European practice. In particular, examine opportunities to move to EU vehicle standards of key importance e.g. front and side impact protection for car occupants, pedestrian protection, HGV underrun protection Move to good practice in addressing compliance with safety issues by heavy vehicles and users. Review operational strategies and policing tactics to develop effective deterrence models for activities. Provide for knowledge transfer in transport and police sectors to achieve capacity for development of road user awareness and behaviour measures. Determine traffic police equipment and operational training requirements and set related national and regional priorities to address current road safety risks. Review funding, resources, equipment and training requirements to deliver traffic safety education in pre-schools, primary and secondary schools. Pilot multi-sectoral packages of measures to improve compliance with speed limits, seat belt and crash helmet use laws, excess alcohol legislation, compliance with safe overtaking rules. Provide for knowledge transfer between emergency services and medical trauma specialists. Review funding of emergency trauma care based on analysis of hospital trauma data and ambulance performance data. Ensure that safety is an equal consideration to access (mobility) and environmental considerations in transport policy Adopt a long-term vision for effective road safety management within government to enable the production of an effective road safety programme. Adopt the European lead agency model for road safety - the Ministry of Transport which takes responsibilities for vehicle and driver registries; national road safety strategy, policy development (including legislation) and co-ordination; securing sustainable annual funding; establishing the important road safety delivery partnerships; road safety research management and knowledge transfer, managing the longer term de-centralisation of road safety; and engaging the nongovernmental sector and all-party Parliamentary support. Make new effective arrangements for co- ordination of key Ministries: Transport, Interior, Health and Education around the development of a new national road safety strategy with challenging but realistic final and intermediate outcome targets. Mount national conference in association with international agencies Strengthen graduated licensing arrangements for novice drivers. Achieve best European practice in heavy vehicle and driver safety compliance. Support and promote the findings of New Car Assessment Programmes to encourage a high level of protection. Roll out good practice multisectoral packages of measures nationally and locally to improve compliance with speed limits, seat belt and crash helmet laws, excess alcohol legislation and safe overtaking rules. Extend traffic safety education to all pre school, primary and secondary schools in Ukraine. Upgrade pre-hospital and hospital emergency care provision on high-risk corridors and urban centres. Improve management of agency performance. Ensure effective co-ordination is established at regional levels. Mount national conference every 2 years in association with international agencies to promote road safety Review experience of previous 10 years and revise design and operation procedures accordingly. Review experience of previous 10 years and revise design and operation procedures accordingly. Extend upgrade nationally. Ensure that there is effective road safety co-ordination at local levels. Mount national conference every 2 years in association with international agencies to promote road safety 12

13 to launch new road safety approaches every 2 years Legislation Review key road safety legislation and consider introduction of urban speed limits, drinking and driving legislation, crash helmet use, penalty points system, heavy commercial transport and long distance public transport work and rest times, mandatory third party insurance etc.: Resource allocation Funding mechanisms Monitoring and evaluation Research and development and knowledge transfer Parliamentar y relations Nongovernmental organization engagement Introduction of staff training across road organisations in road safety risk assessment and countermeasure development. Development of pilot multi-sectoral road safety projects (transport, health, police and education) on identified high risk corridor(s) and urban centres covering speed, alcohol use, seat belt use, safe overtaking, road safety engineering components and improvements to emergency medical care system. Maximise cost-effective treatments of high risk locations on road network Develop long term funding proposals and associated prioritisation and financial management systems with clear road safety funding streams in government budgets. Earmark 10% of all new road project funding for safety purposes beyond those projects. Earmark 10% of mandatory third party insurance (when introduced) transparently to road safety budgets Build comprehensive crash data base, available to all government users initially, to enable targeted interventions to be developed and develop compatibility with future health sector injury surveillance systems. Embark on in-depth crash studies. Build and encourage road injury prevention research capacity across all key sectors inside and outside government. Develop a national road safety research strategy. Review road safety legislation and regulations, better align penalties with relevant road safety risks and strengthen legislative settings as necessary. Introduce legislation and capacity for further enforcement to deter emerging unsafe behaviours. Roll out programmes to national, regional and municipal networks. Develop long term funding proposals and associated prioritisation and financial management systems with clear road safety funding streams in government budgets. Introduce national and regional monitoring of key road safety behaviours. Have in place a robust multidisciplinary national road safety research programme Review road safety legislation and regulations, better align penalties with relevant road safety risks and strengthen legislative settings where necessary. Target comprehensive programmes down to local level. Develop long term funding proposals and associated prioritisation and financial management systems with clear road safety funding streams in government budgets. Upgrade road traffic crash databases and extend performance monitoring to local levels. Ensure road safety research arrangements are separate from government. Encourage all party Parliamentary interest in road safety. All Party Parliamentary Road Safety Committee established to inquire into road safety issues. Support the development of the road safety NGO sector and the development of road safety promotional tools. Engage professional organisations in road safety e.g. engineering and medical professions. Support the non-governmental sector to develop and promote specific road safety activity. 13

14 4. Defining a short-term investment strategy for Ukraine The proposed short term strategy is set out in Table 4.1 and key steps are summarised below. Synergies with the work of key international organizations and donors and possible joint funding opportunities are highlighted. Accountability, high-level leadership, co-ordination and funding The Government needs to adopt a long-term vision for effective road safety management within government to enable the production of an effective road safety programme with challenging but realistic casualty targets. The responsibilities of various departments need to be specified clearly, preferably in legislation, and agreed, with regulatory and compliance functions separated in line with good European practice. The lead agency for the road safety role (on the basis of first among equals- carrying out a range of key functions), needs to be agreed, but with each department responsible for its own areas of accountability. It is recommended that Ukraine adopts the European lead agency model for road safety in which the Ministry of Transport takes responsibilities for vehicle and driver registries; national road safety strategy, policy development (including legislation) and co-ordination; securing sustainable annual funding; establishing the important road safety delivery partnerships; road safety research management and knowledge transfer, managing the de-centralisation of road safety; and engaging the non-governmental sector and all-party Parliamentary support. The road safety coordinating council should (preferably) be a smaller group of Ministers (Transport, Interior, Health and Education) than exists at present, supported by a senior executive group of department heads, who in turn are supported by senior road safety managers who also oversee technical working groups. Secretariat functions should be established and a reference group of other government agencies and parties external to government should be set up. Senior officials and politicians should be expected to show a positive example by complying with road laws at all times. Any existing exemptions from compliance (within enforcement practices or regulations) for certain office-holders should be removed. Long term funding proposals and associated prioritisation and financial management systems need to be developed with clear road safety funding streams in government budgets. Earmark 10% of all new road project funding for road safety purposes beyond those projects and ring-fence funding for substantial annual road safety engineering work. Earmark 10% of mandatory third party insurance (once introduced) to road safety. Mount a national conference in association with international agencies to launch and promote road safety approaches every 2 years Results focus and knowledge building Road safety capacity across all departments and urban administrations needs to be upgraded to improve understanding of the road safety problem, to identify in detail the nature of the crash problems and the key strategies and countermeasures, based on evidence and data analysis, that can be introduced reasonably quickly to reduce road trauma. A multi-sectoral data working group should be established as a priority to introduce improved crash data collection, analysis and data sharing and to develop links to enhanced health 14

15 system data. A challenging but realistic national casualty reduction target should be set as soon as possible. Key road safety performance indicators need to be identified and measured on an ongoing basis e.g. average mean free speeds on representative parts of the road network, excess alcohol use, seat belt and crash helmet use and targets set for the long term strategy. Build and encourage road injury prevention research capacity across all key sectors inside and outside government and develop a national road safety research strategy. Road safety engineering capacity should be upgraded through early assistance with developing and implementing new guidance for road safety engineering including high risk corridor identification and remedial works; black spot/length identification and treatment, road safety audit and for enhanced road safety standards. Upgrade capacity for understanding and analysis of road user behaviour in order to develop and implement measures to further improve road user compliance as soon as possible. Commence an independent (of government) multi-disciplinary crash investigation process to improve crash understanding as part of the proposed research strategy. Interventions Enforcement needs to be strengthened following conduct of public information campaigns about unacceptable behaviours and their road safety risks. Fines need to be substantially increased and license suspension and other sanctions need review. Upgraded police operational strategies and tactics to achieve increased deterrence in areas including speeding, drink driving and non use of seat belts could be achieved through early assistance from European traffic police experts. Automated speed enforcement should be an early priority and a lower tolerance prosecution threshold of speeds over the legal limit (currently 20km/h in urban areas) should be implemented after the initial public information campaign. Urban speed limits need to be reviewed and reduced to lower the number of pedestrian deaths in particular. Consider giving road authorities (with some National control) the responsibility to set speed limits. Equipment and training is needed by Police to target national and regional compliance priorities based on identified road safety risks as agreed by the senior executives advising the coordinating council of Ministers. Review and upgrade vehicle safety standards (especially front and side impact protection for car occupants and pedestrian protection) and strengthen heavy vehicle and driver compliance requirements to European best practice. Review current novice driver preparation/license testing to reduce novice driver crash risk to European best practice Build road trauma management capacity in the emergency medical system and obtain increased funding for enhanced treatment. Upgrade the Ukraine hospital road trauma data system to provide an authoritative record of trauma. Introduce a mandatory third party insurance scheme Develop and obtain funding for pilot multi-sectoral road safety projects (transport, health, police and education) on identified high risk corridors and in urban city centres covering reduced speed, reduced excess alcohol, increased seat belt and crash helmet use, targeted 15

16 infrastructure safety improvements (including use of road safety audits) and improvements in the emergency medical system. Table 4.1 also highlights a range of other priorities task including reviews of additional road safety legislation needs and support for the non-governmental sector. 16