Resolution of the Government of the Republic of Kazakhstan
As of May 29 2001 #726 “On the Concept of Road Sector Development
In the Republic of Kazakhstan for 2001-2008”
The Government of the Republic of Kazakhstan DECREES:
1.
To approve the attached Concept of Road Transport Development In the Republic of
Kazakhstan in 2001-2008
2.
To the Ministry of Transportation and Communication of the Republic of Kazakhstan –
develop a Program of Road Sector Development for 2001-2008 within one month, and
submit it for approval to the Government of the Republic of Kazakhstan under established
procedure
3.
The present resolution shall enter into force since the day of signing.
Prime Minister
Of the Republic of Kazakhstan
K. Tokayev
APPROVED
By the Resolution
of the RK Government
As of May 29 2001 #726
CONCEPT
Of Road Transport Development
In the Republic of Kazakhstan for 2001-2008
Introduction
Car roads constitute one of the important elements of Kazakhstan transport and communication
system. In current situation, efficient functioning and stable development of road sector becomes an
important factor of stabilization and economic development, national security, increase of living
standards and improvement of lifestyle.
Location of the Republic of Kazakhstan in the middle of Eurasian continent creates favorable
prerequisites for use of trans-continental highways on now developing routes connecting Asia and
Europe, most of which include Kazakhstani car roads.
As international economic relations expand, volume of trade between countries develops, and
increasing domestic and transit vehicle traffic places higher demands to working condition of car
roads and quality of services provided.
The President emphasized the importance of transit potential and noted the necessity of
establishment of strong transportation and communication system for the economic development in
his annual address to the people of Kazakhstan. The plan provides for new transportation systems
connecting with international markets, modernization of roadways, active construction of “EastWest” and “North-South” road systems, outrunning development of Caspian infrastructure,
intensification of the reconstruction of Almaty-Astana highway.
Upon implementation of the republican strategy for social and economic development, vehicle
traffic will rapidly increase, which indicates the necessity for road network development. Objective
prerequisites for the development include:
1) Gross National Product growth, with increasing role of processing industry and agriculture;
2) Increasing cargo and passenger traffic; potential for increase of transit communication;
3) Provision of stable vehicle communication between villages, rayon and oblast centers;
4) Preservation of the existing road system.
On the long run, modernization of road transport is set among the most important priorities in
the Presidential Address to the People of Kazakhstan: “Kazakhstan – 2030: Prosperity, Security and
Improvement of Lifestyle for all Kazakhstanis”.
Road transport development is a complex multilateral issue that requires thoroughly developed
state policy in the road sector area, based on actual influence of the road factor on social and
economic processes in the republic, and takes comprehensive approach and application of program
methods of decision-making.
1.
Current condition of the road transport in Kazakhstan
In Kazakhstan car roads are being prevailing, and even, for many regions, the only available
way of cargo and passenger transportation. Total length of car roads in Kazakhstan comprises 128 th.
kilometers. Out of these, 85.6 th. kilometers are general use roads, and 42.4 th.km – departmental
(service) roads. General use car roads are divided by republican and local roads.
Currently total length of republican car roads comprises 23011km. Within the republican
network, approximately 13 000 kilometers belong to international corridors, included into subregional Asian and European transportation network (ESCATO, TRACEA, CIS international roads).
Even though republican roads comprise only 27% of the general use roads, they carry more than
50% of overal vehicle traffic.
Development of the general use road transportation network in the Republic is basically
completed. To finish it, roads connecting with neighboring countries (Beyneu-Nukus, KzylordaUchkuduk, Uzunagash-Bystrovka (Kemin), several exits to Russia) shall be constructed. However,
direct communication between Western and Central Kazakhstan is still missing; the shortest route
here would be the one between Karabytak and Torgay.
As for the technical condition, most of the general use roads have black pavement (asphaltconcrete or black sandstone) – 65.4%, gravel or sandstone – 29.3%. 4,580 kilometers of roads (5.3%)
are dirt roads with no pavement.
General use roads (km)
Share (%)
Including, republican roads
Share (%)
Technical condition of roads
Total
By types of pavement
AsphaltBlack
Gravelconcrete
gravel
sandstone
85647
11724
4256
25087
100
13.7
51.7
29.3
23011
5616
15326
1759
100
24.4
66.6
7.7
Dirt roads
4580
5.3
310
1.3
Quality level of republican roads is slightly above average – 91% of the roads has black
pavement, 7.7% -- gravel, 1.3% -- dirtroad gaps. Most of the roads (86%) is of II or III category. This
type of roads has two roadways, 7-8 meters wide. Car roads of first category (4 roadways) comprise
685 kilometers – mainly around oblast centers and large localities.
Significant part of general use roads (29.3%), including 1,759 kilometers of republican roads,
has transitional type of pavement (gravel and sandstone),. 4,580 kilometers of roadways have no
pavement (ground roads), including 310 kilometers of republican roads. These roads do not satisfy
neither speed requirements, nor load and safety standards.
Main problem or road transport is the rapid deterioration of road pavement load capacity. Most
of the car roads (86%) were designed and built in 1960-80th, according to the normatives of that
period, when axial load did not exceed 6 tons. At present time acceptable axial load is increased to 10
tons. However, certain transport vehicles exceed these limits and destroys the road pavement.
Technical inspection as of fall 2000 indicated that 5,348 kilometers (23% of the pavement) on
the republican car roads are in the stage of deterioration and have dangerous defects.
Only during the last year the length of such roads increased by 322 kilometers. Number of
dangerous sections increased by more than 6 times as compared to 1993. It indicates overall
worsening of maintenance level. Overall, only 20% of republican car roads can be deemed firm and
flat. This is 2.5-3 times less than the similar indicator for federal roads in Russia.
Length of local car roads in the republic is equal to 64034 kilometers (77% of general use
roads). They serve as a source of initial cargo and passenger traffic.
More than half of local car roads (59%) has black pavement, 22,277 kilometers (35%) – gravel
and sandstone, and 3,970 – dirt roads.
At present time all rayon centers and 90% rural localities have access roads with hard
pavement. The others have only dirt roads, and are practically isolated during spring and fall flood.
Bridges. General use car roads are connected by more than 3000 bridges and tunnels. 95% of
them are heavy-duty, the others are wooden.
As the inspection indicated, out of 947 bridges located on republican roads, 212 (22%) are in
unsatisfactory condition. Their reliability is secured only on 80%. 62 bridges are in emergency
condition with capacity less than 50% of designed, and can be operated only under special passage
conditions.
Significance of roads
International corridors
Others:
Republican
Local
Bridges on car roads
Bridges (more than 100 running meters)
Number
Total length (r.m.)
61
12067
Other bridges
Number Total length (r.m.)
670
21173
18
-
351
2118
2812
-
16775
68882
In general, bridges are being in unsatisfactory or even in emergency condition; most of them
have been built in 1957-1965, and therefore have exhausted their useful life. Overall trend is that every
year, 10-15 bridges on republican roads transfer from unsatisfactory into emergency condition, due to
excessive workload and lack of necessary maintenance.
Condition of bridges
Number/r.m.
Roads
Republican
Incl., 6 main routes
Local
Good& satisfactory
813
274/11469
1419/50398
Unsatisfactory
224
131/6210
620/15570
Emergency
63
36/4796
79/2914
More than 30% of bridges do not comply with roadway standards, which jeopardizes road
safety.
Funding of roadway maintenance. Steady trend towards deterioration of roadway network is
directly connected with unstable funding of road sector. In 1992 expenditures on road transport were
equal to US $798.1 million; in 1994-95 they dropped down to US $50 million, in 2000 they went up to
US $102 million, and in 2001 they are budgeted in the amount equal to US $160 million.
It should be noted, that 90-95% of the repair required every year is not done due to lack of
funding. For instance, in Kazakhstan before 2001 spending per one kilometer of car roads did not
exceed US $1.6 thousands. In Russia this indicator is equal to US $8.3 thousands, Byelorussia – 7.5
thousands, in Uzbekistan – 4.7 thousands. In developed countries, such as the USA, Germany, or
Japan, spending per one kilometer of car roads exceeds US $17 thousands. Kazakhstan plans to
increase spending up to the level of Russian Federation
Insufficient funding of car roads leads to significant unproductive costs for roar transport.
Besides, Kazakhstan loses its transit capacity.
The present situation occurred not only due to economic problems within the state, but also
because of underestimation of the role of road sector in the economy.
One of the ways for solving the funding problem for road ways is the gradual transfer (as the
economy and living standards of population increase) towards Road User Cost-Recovery system,
consistent with international practice.
Transit capacity of roadways in the Republic of Kazakhstan. In 1998 transit traffic comprised
48,914 foreign heavy load vehicles, while in 1999 it went down to 34,698. This trend went on in 2000,
which indicates overall reduction of transit traffic due to deterioration of roadways and other
unfavorable conditions.
At present time, factors of speeding up and regularity of cargo delivery by road vehicles have
significant importance. Therefore, producers (and others) rely on road ways not only for short routes,
but also for long destinations.
Analysis of existing cargo traffic in the Republic of Kazakhstan indicated six main corridors:
I.
Tashkent-Shymkent-Taraz-Bishkek-Almaty-Horgos (the “Silk Way”);
II.
Shymkent-Kzylorda-Aktubinsk-Uralsk-Samara;
III.
Almaty-Karaganda-Astana-Petropavlovsk;
IV.
Astrakhan-Atyrau-Aktau-Turkmenistan border;
V.
Omsk-Pavlodar-Semipalatisk-Maykapshagay;
VI.
Astana-Kostanay-Chelyabinsk.
Total length of six transit roadways is equal to 8,258 kilometers. Out of them, 2,982 kilometers
are in unsatisfactory condition, and 5,276 – in unsatisfactory.
Characteristics of the corridors
Length
Condition
(km)
Satisfactory Unsatisfactory
Tashkent-Shymkent-Taraz-Bishkek1137
267
870
Almaty-Horgos
Shymkent-Kzylorda-Aktubinsk2048
607
1441
Uralsk-Samara
Almaty-Karaganda-Astana1669
844
825
Petropavlovsk
Astrakhan-Atyrau-Aktau1420
312
1108
Turkmenistan border
Omsk-Pavlodar-Semipalatisk1105
600
505
Maykapshagay
Astana-Kostanay-Chelyabinsk
879
352
527
Route
Traffic intensity
(vehicles per day)
4567
1227
2599
757
900
2376
Development of transport corridors increases international importance of renovation of
historical centers of the “Silk Way” in the Republic of Kazakhstan. Renewed “Silk Way” passes along
the Tashkent-Shymkent-Taraz-Bishkek-Almaty-Horgos roadway with total length of 1137 kilometers.
Transit through the territory of the Republic of Kazakhstan consists mainly of vehicles moving
between the republics of Central Asia and Russia.
Environmental impact. Several main roadways on exits to large localities suffer from traffic
overload. Vehicle traffic has significant negative impact on the environment.
Due to reduction of speed on sections with unsatisfactory condition, and in places of traffic
jam, the volume of CO2 emission increases by several times as compared to the volume of emission on
roads with optimum speed.
Especially negative impact on the environment occurs within localities. Several intersections at
one level, vehicles parked by roadsides, chaotic pedestrian traffic lead to unstable, maneuvering
vehicle traffic with varying speed, which causes multiple increase of exhaustion and noise level, and
creates accidents. Anti-noise fences are completely absent, the number of traffic lights and proper
pedestrian ways is insufficient. These factors cause inconvenience for people living by roadways, and
increase sickness rate among them.
Aforementioned problems of road sector indicate the necessity for improvement of the state
regulation system for the sector, as well as for provision of adequate funding and development of
proper legal base.
2. Goals and Objectives of the Concept.
3.
Goal of the Concept is the establishment of basis for development of state policy in the area of
road sector, maintenance and modernization of roadway network, setting of development priorities,
establishment of stable financial basis and necessary legal base, consistent with the recent and future
directions of the state road policy.
To achieve the goal, the Republic of Kazakhstan shall accomplish the following objectives:
1) Provide adequate funding for road sector improvement activities;
2) Maintain and develop the existing roadway system, improve of the condition thereof; bring
the main transit routes into compliance with technical requirements;
3) provide more favorable and secure conditions for domestic and international carriers in the
Republic of Kazakhstan;
4) intensify development of the existing main transit highways, and continue to develop
possible alternative projects, allowing to increase potential for entering into world markets;
5) attract domestic and international investors for development of road infrastructure on transit
highways;
6) establish legal base for private and paid car roads;
7) improve rules and regulations with regard to the road sector.
4. Ways and mechanisms for accomplishment of the Goals and Objectives.
4.1 Secure funding of activities for improvement of car roads.
The amount of budget funds necessary for the road sector in 2002-2005 will be adjusted in
process of planning and development of the Republican budget for relevant financial year, to provide
sufficient funding for the sector.
Taking into account existing budget constraints, the sector will continue looking for alternative
sources of funding in accordance with the legislation, including domestic and international investments
in the repair and construction of highways.
4.2
Maintain and develop the existing network of car roads, improve condition thereof and
bring the main transit routes into compliance with technical requirements.
To maintain and develop the existing road network, the following will be continued: recovery
of devastated sections of highways, reconstruction of bridges in emergency condition, starting from
those connecting international routes; liquidation of dirt gaps on roads; road construction on
perspective directions.
In order to accomplish these, implementation of new technologies is required, alongside with
the research and development in the sector, technical modernization, and division of the sector by state
and private parts.
One of the priority directions is to improve the quality of repair and construction works. The
central element thereof is the establishment of an efficient system for construction and repair quality
management, as well as control and analysis of the technical condition of roads. Development of the
system shall be based on the set of organizational tasks, including:
Development and improvement of the system of technical normatives for car roads and road
works, including drafting and approval of the normatives, as a result of the research performed by the
CIS Interstate Council of Road Sectors, as well as within the republican programs;
Development of information system to provide management and control over the condition of
car roads;
Development of road works quality control system, including metrological provision by means
of establishment of quality laboratories in each region, within local subdivisions of the Road
Committee.
Improvement of certification system for raw materials, inventory and technologies.
Quality control system in road sector shall be based on the system of technical normatives,
setting progressive norms, rules and requirements, as well as on rigid control of compliance with these
norms on all stages, from planning to construction and maintenance.
4.3
provide more favorable and secure conditions for domestic and international carriers in
the Republic of Kazakhstan.
Car roads, servicing concentrated cargo traffic, including international routes, shall provide
sufficient benefits by means of speeding up cargo and passengers delivery, provision of cargo and road
safety, establishment of conditions for normal work and rest of road users. This objective shall be
accomplished through the improvement of technical conditions of highways, and development of
service objects.
4.4
intensify development of existing main transit highways, and continue to develop
possible alternative projects, allowing to increase potential for entering into world markets.
Development of existing main transit highways and new entrances into world markets will be
intensified through participation and joining to international treaties and agreements in the area of road
transport.
4.5
Attract domestic and international investors for development of road infrastructure on
transit highways.
Development of modern highway network requires an improvement of cargo and passenger
service through the establishment of necessary conditions for cargo safety, normal work and rest of
road users, as well as for the development of road tourism.
Road sector funding system and the state policy for development and support of medium and
small businesses divide road service objects into two groups, to be constructed and funded from
different sources, with separate organizational and legal treatment.
The first group of objects comprises those included into the road complex: emergency
communication, short-term parking lots, bus stops, car pavilions. The second group comprises paid
service objects (motels, campings, gas stations, technical maintenance stations, catering points,
terminals, etc.), working as small business enterprises with own means of development. Establishment
and development of these enterprises will be determined by the level and supply and demand, and
supported by favorable treatment from the government.
4.6
Establish legal base for private and paid car roads. Establishment of paid roads, bridges
and tunnels is one of the sources of funding of road sector development, as well as of improvement of
services rendered to road users.
One of the main sources of road sector development, alongside with attraction of investment
from banks, insurance companies and other financial institutions for road building and reconstruction,
is the establishment of paid road objects, to attract investment from road users.
Existing car roads, bridges and tunnels, as well as those being in process of construction and
new construction objects, can be deemed as paid objects. Establishment of paid roads, bridges and
tunnels should be made possible only in case if free alternative passage is available in this direction.
The amount of fee shall be based on the level of increased convenience, and the amount of
benefit acquired by road users through increase of speed, reduction of traffic cost, time and gas spent,
as well as increase of road safety.
Establishment and maintenance of private and paid highways and road objects require the
development of appropriate rules and regulations.
4.7
Improve rules and regulations with regard to the road sector.
Road sector reform requires modernization and development of rules and regulations in the
area of road sector, namely the improvement of normatives regulating road sector activities, authority
of central and local executive bodies, as well as rights and responsibilities of legal entities and
individuals participating in establishment and development of general use highways, in accordance to
the following general principles: equal access to the road network, economic efficiency of the road
sector, implementation of social functions of car roads.
The Law of the Republic of Kazakhstan “On Road Sector” will serve as a main legal document,
intended to determine legal status of car roads, and enforce rights and responsibilities of all
organizations, cooperating in process of road sector development and use.
Taking into account large volume and multilateral nature of the road sector legal base, and
necessity of the unification thereof with international standards, improvement of technical standards
and normatives is performed within research and development done by the CIS Interstate Road Sector
Council.