PROPOSED SOLUTIONS
The proposed solutions are organised into three strategic pillars: (A) Public Transport
Enhancement; (B) Demand Management; and (C) Infrastructure Upgrade. Each solution is
classified by implementation timeframe (short-, medium-, or long-term), estimated cost category,
and primary responsible agency.
Pillar A: Public Transport Enhancement
Bus Rapid Transit (BRT) Corridor – Thika Road Line
One of the public transport improvement strategy is to have a Bus Rapid Transit (BRT) system
along the Thika Road corridor. BRT is a high-quality, high-capacity bus-based transit system that
delivers metro-like performance. The proposed Thika Road BRT would extend from the Globe
Roundabout CBD terminus to the Thika Town terminus, a distance of approximately 42
kilometres.
The key design features of the proposed BRT system include:
•
Dedicated bus lane in each direction, created by converting one existing express inner
lane per direction.
•
Off-board fare collection at closed, level-access stations to eliminate dwell time losses.
•
Real-time Automatic Vehicle Location (AVL) system enabling reliable schedule
adherence and passenger information.
•
High-frequency operations: minimum 3-minute headways during peak hours, 6–10
minutes during off-peak.
•
Adequate Fleet Size for peak-hour operations.
•
Integration with feeder bus services, NMT infrastructure, and park-and-ride facilities.
•
Level boarding platform design for accessibility compliance.
International experience from comparable BRT systems—such as Johannesburg’s Rea Vaya, Dar
es Salaam’s DART, and Lagos BRT-Lite—indicates that BRT can achieve a modal shift of
approximately 15–30% from private cars within 3–5 years of operation, while delivering peakhour passenger throughput in the range of 4,000–8,000 passengers per hour per direction
(pphpd).
Park and Ride Facilities
Park-and-ride (P&R) facilities are strategically located car parks situated at or near major public
transport nodes, enabling motorists originating from peri-urban catchments to drive to the facility,
park securely, and continue their journey by public transport into the congested urban areas. This
strategy intercepts vehicle trips before they enter the congested section of the corridor, reducing
both vehicle volumes and the associated externalities.
Three park-and-ride facilities are proposed along the Thika Road corridor:
•
Ruiru P&R Hub (Northern terminus): To be designed as a multi-storey facility adjacent to
the Ruiru Interchange, with integrated BRT and matatu interchange. Land availability is
favourable given the proximity to the Eastern Bypass junction.
•
Roysambu P&R Hub (Mid-corridor): To be designed as a multi-storey facility integrated
with the proposed Roysambu BRT station. Potential to expand to a multi-storey structure
in the next phase.
•
Garden City P&R Hub: to begin as a surface car park but later on to be upgraded to multistorey facility. It would be integrated with the Garden City BRT station.
Pricing strategy for P&R facilities should be set significantly below CBD parking rates to create a
clear financial incentive for modal shift. Monthly and annual season ticket products should be
offered to drive regular use.
Public Service Vehicle Fleet Modernisation and Incentives
Most of the matatus and buses serving the Thika Road corridor are ageing, poorly maintained, and
provide an unattractive level of service that discourages potential users from shifting away from
private car use. A targeted incentive programme for Public Service Vehicle (PSV) operators is
proposed to accelerate fleet renewal and improve service quality:

Low-interest green vehicle financing facility: Establish a co-funded financing
mechanism (by government and development finance institutions) to support operators in
acquiring electric or hybrid buses as replacements for ageing minibuses.

Competitive route-based franchising for PSV Saccos: Award operating rights for the
Thika Road corridor through a competitive tendering process. Tender criteria should
include service quality standards such as vehicle age limits, GPS tracking, electronic
ticketing, staff uniform requirements, and adherence to schedules. Only compliant
operators would be permitted to operate on the corridor following franchise awards.

Operational incentives for compliant operators: Provide a full waiver of annual
inspection fees and reduced third-party insurance levies for Saccos that meet and maintain
the required standards.
Schedule Planning and High-Quality Transit Services
Beyond physical infrastructure, the quality of the travel experience is a key factor influencing how
people choose to move. A comprehensive service improvement programme is proposed:

Real-time passenger information: Provide accurate arrival and departure information
through digital displays at BRT stations and major matatu termini, integrated with mobile
applications.

Integrated fare system: Introduce a unified electronic payment system across BRT,
matatus, and park-and-ride facilities to enable seamless travel using a single payment
method.

Staggered working hours: Pilot flexible working schedules in partnership with major
corridor employers (such as universities, hospitals, Kenya Power and Lighting Company,
Kenya Electricity Generating Company, and Safari Park Hotel) to spread peak travel
demand.

Premium express bus service: Introduce high-quality commuter buses targeting private
car users, offering guaranteed seating, Wi-Fi, air conditioning, and reliable travel times as
a competitive alternative to driving.
Pillar B: Demand Management
Congestion Charging Scheme
Congestion charging is an effective way to manage traffic demand by ensuring that road users pay
the true cost of their trips, including the delays they cause to others. By pricing road access during
peak periods, congestion charging simultaneously raises revenue which can fund public transport
improvements, reduces demand, and allocates scarce road space to those who value it most.
A cordon-based congestion charging scheme is proposed for the Nairobi Inner Cordon. This would
apply to vehicles entering the Central Zone during peak hours (07:00–09:00 and 17:00–19:30).
Key design features:

Pricing: Charge per inbound trip for passenger cars, to be set based on transport demand
modelling.

Technology: Free-flow electronic charging using Automatic Number Plate Recognition
(ANPR), similar to systems in Stockholm, Singapore, and London.

Exemptions: Emergency vehicles, motorcycles, and high-occupancy vehicles (3+
passengers).

Discounts: 50% reduced charge for certified low-emission vehicles (hybrid/electric).

Revenue use: All net revenues to be ring-fenced for public transport improvements,
including BRT operations, fleet renewal, and non-motorised transport (NMT)
infrastructure.
International experience provides strong evidence of the effectiveness of congestion charging. In
Stockholm, the congestion tax reduced car trips across the cordon by approximately 20–25%
within the first year, with sustained reductions of around 15–20% over the following decade
(Swedish Transport Agency. The Stockholm Congestion Charges – Effects and Lessons Learned).
Similarly, London recorded a 27% reduction in car traffic within the charging zone in its first year
of operation (Transport for London (2004). Central London Congestion Charging: Impacts
Monitoring – First Annual Report)
These precedents offer a credible basis for estimating potential demand impacts in Nairobi,
although local travel behaviour and system conditions may result in different outcomes.
Parking Pricing Reform
Current on-street and off-street parking charges in the Nairobi CBD are widely regarded as
insufficient to deter car travel, with many informal parking arrangements available at KES 100–
300 per day. A comprehensive parking pricing reform programme is proposed:
•
Gradually increase metered on-street parking fees in the CBD with a two-year transition
period to allow users to adjust.
•
Introduce a Workplace Parking Levy (WPL) on employers providing more than a defined
threshold of free or subsidised parking spaces. The levy rate would be determined through
stakeholder consultation to ensure practicality and acceptability. This measure encourages
employers to reduce parking provision, pass on the cost, or offer alternative mobility
benefits. International experience, such as in Nottingham, demonstrates that workplace
parking levies can reduce car commuting while generating sustainable funding for public
transport.
•
Revenue from parking charges should be ring-fenced and directed toward both nonmotorised transport (NMT) infrastructure and public transport subsidies.
Carpooling Incentives Programme
Carpooling (ridesharing) is a low-cost demand management measure capable of reducing singleoccupancy vehicle trips by approximately 10–15% when supported by appropriate incentives. This
range is supported by European evidence, including findings from the European Commission
report “The First and Last Mile – The Key to Sustainable Urban Transport” (2019) and
evaluations under the CIVITAS Initiative (2018–2022), which document measurable traffic
reductions from shared mobility schemes. The proposed programme includes:

Carpooling platform: Provide free access to a government-endorsed mobile application
that helps commuters along common routes find carpool partners.

Congestion charge exemption: Vehicles carrying more than three occupants would be
exempt from congestion charges, encouraging higher vehicle occupancy.

Employer engagement: Work with major corridor employers to offer financial or other
incentives to employees who regularly carpool.
Vehicle Importation Policy Reforms
Managing the growth of private vehicles in the Nairobi Metropolitan Region requires structural
policy measures at the national level. Two reforms are proposed for consideration by the Nairobi
Metropolitan Region Road Agency:

Increase in import duty on private passenger cars: Gradually raise import duties for
private cars, particularly for vehicles with engine displacements above 1,600cc, while
maintaining or reducing duties for hybrid and electric vehicles. This measure would help
moderate private vehicle fleet growth without restricting access to affordable or lowemission mobility options.

Reduction of maximum permissible import age: Lower the age limit for used passenger
vehicles from the current 7 years to 5 years. This would encourage a younger, safer, and
more fuel-efficient vehicle fleet, reducing emissions and improving road safety.
Transitional arrangements would be required to protect legitimate trade and allow for a
smooth adjustment.
Pillar C: Infrastructure Upgrade
Tolled Elevated Expressway
To address long-term corridor capacity constraints, the construction of a tolled elevated
expressway along the existing Thika Road alignment is proposed. This approach, successfully
implemented in Nairobi's western corridor through the Nairobi Expressway (A8) project, adds lane
capacity without the land acquisition and displacement costs associated with at-grade widening.
The proposed Thika Road Elevated Expressway (TREE) would extend approximately 42 km
from the Museum Hill Interchange (linking to the Nairobi Expressway) to the Thika Interchange.
Key design features:

Configuration: Dual 3-lane elevated structure (three lanes per direction) with gradeseparated access at major nodes including Muthaiga, Survey, Allsops, Garden City,
Roysambu/TRM, Githurai 45, Ruiru, the Eastern Bypass, Juja and Thika

Design speed: 100 km/h, with an operating speed target of 70–80 km/h under normal
conditions.

Tolling: Electronic free-flow tolls for passenger cars, with proportionally higher rates for
heavy goods vehicles.

Development model: Public-Private Partnership (PPP) under a Build-Operate-Transfer
(BOT) arrangement, following the Nairobi Expressway concession model.

At-grade road use: The road beneath the elevated structure would be repurposed for BRT
operations, non-motorised transport (NMT), and service roads, improving travel quality
for all modes at ground level.
Intersection and Junction Improvements/treatments
In the short to medium term, targeted upgrades at at-grade intersections along the corridor can
provide meaningful congestion relief at relatively low cost while supporting reliable BRT
operations.
Proposed measures for at-grade junctions:

Adaptive Traffic Signal Control (ATSC): Install ATSC systems at all signalised at-grade
intersections. These real-time, demand-responsive signals adjust timing dynamically to
optimize traffic flow.

No-stopping and no-parking enforcement: Prohibit stopping or parking within 100
metres of at-grade junctions using physical measures (raised kerbs, bollards) and CCTVenabled enforcement to prevent blockages.

BRT and high-capacity transit priority: Provide signal and lane priority for BRT buses
and other high-capacity public transport at all at-grade intersections, consistent with
Institute for Transportation and Development Policy (ITDP 2016) standards, to ensure
reliable and predictable travel times.
IMPLEMENTATION METHODOLOGIES
Phased Implementation Plan
The implementation of the proposed interventions is structured in three phases as outlined below;
Phase
Phase 1 – Quick Wins
Phase 2 – Medium Term
Phase 3 – Long Term
Tentative
Timelines
Key Interventions
0–24 Months





Adaptive signals,
Parking reform,
Carpooling platform,
PSV incentives initiation,
BRT preparation works
2–5 Years




BRT Line construction & commissioning,
Park-and-Ride Ruiru & Roysambu,
Congestion Charging pilot,
PSV franchise awards
5–10 Years




Elevated Expressway construction,
Full congestion charging rollout,
BRT fleet expansion,
Garden City P&R hub
BRT Implementation Methodology
The Bus Rapid Transit (BRT) system will be implemented through a structured, phased project
development process aligned with international best practice, including the Institute for
Transportation and Development Policy (ITDP) BRT Standard (2016) and World Bank urban
transport procurement frameworks. The methodology integrates technical, institutional,
environmental, and operational considerations to ensure sustainable and efficient delivery.
Pre-Feasibility Study (Months 1–3):
This phase will establish the preliminary viability of the BRT system through high-level
traffic demand modelling, ridership forecasting, and financial/economic analysis. It will
also include preliminary corridor alignment design, identification of key constraints, and
stakeholder mapping to inform subsequent engagement strategies.
Feasibility Study and ESIA (Months 4–12):
This phase will involve comprehensive technical and environmental assessments,
including detailed traffic surveys, origin-destination studies, and refined demand
modelling. An Environmental and Social Impact Assessment (ESIA) will be undertaken in
accordance with national regulations and international safeguards, alongside utility
mapping and relocation planning. Structured stakeholder engagement will be conducted
with affected communities, businesses, and institutions along the corridor.
Detailed Engineering Design (Months 9–18):
The design phase will produce construction-ready documentation, including geometric
road design, dedicated lane configurations, and intersection treatments. Station design will
cover several stations spaced at major intersections incorporating universal accessibility
standards. Depot design will include one primary depot at Ruiru and a secondary depot at
Roysambu. Additional components will include pavement marking and segregation
infrastructure, Intelligent Transport Systems (ITS) architecture, and electronic fare
collection system design.
Procurement (Months 15–24):
Procurement will be undertaken in compliance with Public Procurement and Asset
Disposal Act (PPADA) requirements and international best practices. This will include
competitive tendering for civil works contractors, selection of bus operators through a route
franchising model, and procurement of fare collection and ITS systems. Clear contractual
frameworks and performance-based specifications will be adopted.
Construction Phase (Months 24–42):
This phase will involve the implementation of all physical infrastructure, including
dedicated BRT lanes, station construction, depot development, and installation of ITS
components. Works will be phased to minimize disruption to existing traffic and adjacent
communities, with traffic management plans implemented throughout the construction
period.
Trial Operations (Months 40–44):
A pilot operational phase will be conducted to test system performance under controlled
conditions. This will include limited service deployment, system calibration, staff training,
and fare system testing. Reduced promotional fares may be introduced to encourage early
adoption and gather user feedback.
Full Commercial Operations (Month 44 onwards):
Full-scale operations will commence following successful trial validation. This phase will
include a comprehensive public communication and marketing campaign, continuous
performance monitoring against defined Key Performance Indicators (KPIs), and periodic
service reviews to ensure operational efficiency and customer satisfaction.
Congestion Charging Implementation Methodology
The congestion charging scheme will be introduced in phases to ensure it is well planned, works
effectively, and is accepted by the public.
Legal and Regulatory Framework (Months 1–6):
The first step is to put the right laws in place. This may involve creating new laws or updating
existing ones to allow congestion charging, define how it will be enforced, and explain how the
revenue will be used. Public participation and stakeholder engagement will be carried out during
this stage.
Institutional Setup (Months 3–9):
A lead agency, such as NMRRA, will be appointed to manage the scheme. Clear roles will be
assigned to all involved agencies, including those responsible for enforcement, operations, and
revenue management, to ensure good coordination.
Technology Procurement (Months 6–18):
The necessary systems will be procured and installed. These include ANPR cameras, gantries, and
a central system for billing, payments (including mobile money), enforcement, and customer
support.
Scheme Design and Pricing (Months 9–18):
The charging area (likely within the CBD) will be defined, along with the pricing structure.
Charges may vary by time of day and type of vehicle. Exemptions and discounts will also be
identified. Pricing will be based on traffic data and aimed at being fair and effective.
Pilot Implementation (Months 18–30):
A pilot scheme will be introduced in a small part of the CBD. This will help test how the system
works, allow adjustments to pricing, and understand how users respond before full
implementation.
Full Rollout (Month 30 onwards):
After the pilot is successful, the full scheme will be launched. This will be supported by public
awareness campaigns, customer support services, and a clear and fair enforcement and appeals
process.
Revenue Management:
All revenue collected will be placed in a dedicated Corridor Improvement Fund managed by
NMRRA. The funds will be used only for improving public transport, walking and cycling
facilities (NMT), and traffic management.
Park and Ride Implementation Methodology
Park-and-ride facility implementation will proceed through the following steps:
•
Site Identification and Land Acquisition: Detailed site surveys and land status verification
for the three proposed P&R locations. Government land should be prioritised to minimise
acquisition costs and timelines. Where private land is required, compulsory acquisition
under the Land Act 2012 provisions may be necessary.
•
Feasibility and Design: Traffic access modelling for each P&R site to ensure adequate
capacity at entry/exit points; structural design for multi-storey components; integration
with BRT station structures.
•
Procurement and Construction: Civil works procurement through competitive tender.
Construction period estimated at 12–18 months per facility.
•
Operations Model: P&R facilities to be operated by a concessionaire appointed on a 10year operating contract, with pricing and service standards specified by the Metropolitan
Road Agency. Revenue-sharing arrangement between concessionaire and NMRRA.
Stakeholder Engagement and Change Management
The success of the proposed interventions, particularly the demand management measures
(congestion charging, parking reform), is critically dependent on public understanding,
acceptance, and behavioural response. A proactive stakeholder engagement and communications
strategy is essential and must be initiated well in advance of scheme implementation. Key elements
include:
•
Public information campaigns through traditional and digital media, explaining the
rationale for each measure, the uses to which revenues will be put, and the benefits to all
corridor users.
•
Business sector engagement to address concerns from corridor businesses regarding
potential reduced customer access, and to identify mitigation measures such as delivery
hour exemptions and employee commute support.
•
Matatu operator engagement: Early and transparent engagement with existing matatu
SACCO operators regarding the transition to the BRT franchise system, with clear
communication of support mechanisms and participation opportunities.
•
Political stakeholder engagement: Regular briefings to county assembly members, MPs
representing Thika Road corridor constituencies, and relevant Cabinet Secretaries to build
and maintain political support.