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Reducing GHG emissions from road transport in Russia's medium-sized cities: Russian Urban Sustainable Transport
Commissioning Unit: Russian Federation
Evaluation Plan: 2011-2017
Evaluation Type: Project
Completion Date: 04/2016
Unit Responsible for providing Management Response: Russian Federation
Documents Related to overall Management Response:
 
1. Recommendation:

Currently the project working plan contains too many lines of action under component #1, providing only recommendations, with no capacity to contribute to the project's objectives in term of reduction of GHG emissions by 2017; it is considered that it would be better to focus scarce resources on the implementation of eco-labelling (relevant for any LEV action in the future) and to the completion of federal guidelines for cities to undertake SUT policies. Alternatives should be found to compensate the lack of achievement of the initial GHG reduction target of 480 kt CO2 in 10 years associated to 20,000 LEVs (for example under the replication component). 

Management Response: [Added: 2016/04/19] [Last Updated: 2016/04/19]

The Project Team partly agrees with the comment. Indeed, the capacity to turn recommendations and methodologies developed under Outcome 1, into implementation stage should be strengthened. However, the relevance of Outcome 1 for creation of enabling environment for GHG emission reductions is well pronounced in the Project Document; the continuation of Outcome 1 activities is confirmed by the Project National Implementing Partner and key stakeholders through the recently approved project Workplan for 2016-17.  The Project Management shares the  MTR concern regarding the capacity of Outcome 1 actions to generate GHG emission reductions (ER) before 2018. In order to mitigate this risk and speed-up transition from draft regulations to their adoption and implementation, the project capacity will be enforced so that the progress with adoption and implementation of all output products will be tracked and lobbied.  In particular, regulations developed for eco-labeling promotion will be lobbied for adoption and further implementation. 

Implementation of  federal guidelines for cities to undertake SUT policies and practices, such as pedestrian zones development, interchange hub, enabling environment for cycling etc. that  have been developed by the project, will be ensured through SUT pilots co-financed by the pilot municipalities plus cities selected for replication. The project is taking into account the necessity to ensure direct ERs under the replication component as recommended, to compensate for the lack of progress with LEV promotion.

 

Key Actions:

Key Action Responsible DueDate Status Comments Documents
Development of ToR and recruitment of a consultant in order to strengthen the current team's capacity to track progress with adoption and implementation of all output products under Outcome 1 (incl. those on eco-labeling), ensure necessary lobbying and follow-up. Selection of replication actions under Outcome 4 based on potential ERs as a key criteria
[Added: 2016/04/19] [Last Updated: 2018/11/07]
Project team MoT 2016/05 Completed The project hired a short-term consultant, Mr. Gleb Evgeniev for facilitation, lobbying and follow-up on various outputs for Outcome 1. Outcome 1 acheivements were rated HS by the Final Evaluation. History
2. Recommendation:

It is recommended to focus studies under component #1 on the problems of reliable urban transport data collection, as established in the PRF; data on urban mobility in Russia is scarce, and could be much improved, taking as a basis the pilot and replicating cities, and lessons could be learnt from similar data systems in other countries. It is recommended to define a set of mobility indicators, to provide technical guidelines about data collection for these indicators, and to collect the information for the cities involved in the project (and ideally other interested cities in Russia).

On the other hand, this data collection would provide a good basis for monitoring of the pilots, and of future actions in cities willing to replicate them, allowing for estimates of GHG emissions associated to project actions actually implemented. At any rate, a final estimate of GHG emissions reduction will have to be done in the second half of 2017, based on the actions implemented and ad hoc data collection of the actual, measurable results achieved.

Management Response: [Added: 2016/04/19]

The project team partly agrees with the recommendation. The comment regarding quality of urban mobility data will be addressed through Workplan Activity 1.1.3 “Development of methodological recommendations on holding regular surveys of urban transit system” which was confirmed as relevant by MTR with the comment that this could be presented as (1) a way to establish a MRV system (urban mobility observatory) on urban transport and (2) as a support for replication (component 4). This activity includes identification of mobility indicators which would be reliable, sufficient and allowing for data compatibility.

However, the project should not be assigned with the task of actual collection of such data, as it lays beyond project financial capacity, mandate and timeframe. The data will be collected by the cities for ITMS and other relevant pilot SUT developments, and through the implementation of the project’s SUT pilots, and should become a sufficient basis for the project to estimate GHG emission reductions associated with the project direct and indirect impact. 

The project will consider the MTR’s idea for the project to develop draft federal regulations requesting the cities to provide key transport statistics related to urban mobility, to MOT. The "EMTA barometer" (www.emta.com) could be used for guidance on key indicators to collect, allowing for benchmarking with many cities in Europe. 

Key Actions:

Key Action Responsible DueDate Status Comments Documents
Ensure timely development and adoption of methodological recommendations on holding regular surveys of urban transit system as an integral part of ITMS that will allow data compatibility between different cities, and unified approach to data processing for ITMS-related activities For the project to follow-up with the MOT regarding the feasibility to develop draft federal regulations requesting the cities to provide key transport statistics related to urban mobility, to MOT.
[Added: 2016/04/19] [Last Updated: 2018/10/28]
Project team CTA 2016/09 Completed History
3. Recommendation:

It is recommended to focus any further cooperation with the two pilot cities on the actions to be implemented by 2017. There has been significant progress in the definition of pilot actions in the first months of 2016, and these efforts should conclude and be formalized through an MoU signed by UNDP, the federal MoT and the local and regional authorities describing all the actions to be implemented, with their schedule and financing plans. It would be convenient to get MoU signed with botch cities by June 2016, in order to make implementation possible. Furthermore, the actions within the MoU could include also the development and implementation of company mobility plans in major administrative centers and companies in both cities, as an additional measure to provide additional savings of CO2 emissions at low cost.

The approved ITMS for both cities provide can serve as a basis for that, but the local technical expertise will have to be fully mobilized to get actions implemented by the termination of the project. This can be done through formalized local working groups, with technical support from the project, as needed. High -level support will be necessary from decision makers in both cities in order to make it possible implementation by 2017.

Management Response: [Added: 2016/04/19]

The Project Team fully agrees with the recommendation. MOUs between project and Kaliningrad (SUT pilot Selma-citycente plus three more SUT activities) drafted and shared with the city Administration; the deadline set for the city to confirm co-financing and sign the MoU is May 15. 2016. In case these plans do not materialize, the Project Steering Committee will be requested to take a formal decision regarding re-allocation of frozen funds under Outcome 3, to Outcome 4. MOU with Kazan to develop a new scheme of public transport routes will be concluded within April 2016; once the new scheme is adopted (in 2017), its implementation will start and generate ERs associated with a better optimized and therefore more attractive public transportation system. As for the company mobility plans, the idea seems interesting; the project will analyse the existing international experience and recommend it to the stakeholders in the two pilot cities.  

Key Actions:

Key Action Responsible DueDate Status Comments Documents
MOUs with Kaliningrad drafted; the project is to ensure feedback by May 15, 2016.
[Added: 2016/04/19] [Last Updated: 2018/10/28]
PM, Kaliningrad City Administrator 2016/05 Completed Feedback from the city of Kaliningrad obtained. History
MOU with Kazan and ToR for new public transportation scheme drafted, MOU signed by April 30, 2016.
[Added: 2016/04/19] [Last Updated: 2018/10/28]
DPM, Kazan City Administration. 2016/05 Completed History
CTA to help with analysis with best available practice regarding company mobility plans and presentation of this idea to the pilot citiesâ?? stakeholders.
[Added: 2016/04/19] [Last Updated: 2018/10/28]
CTA Project team 2016/05 Completed History
4. Recommendation:

It is recommended to increase the local ownership and empower local stakeholders in both cities. The local working groups for the preparation of the ITMS in both cities could be now expanded to include all the relevant local stakeholders with an interest in the pilot actions. This would include agents from the civil society in Kazan and Kaliningrad such as trade and industry councils, unions, and NGOs, and those groups particularly targeted by the pilot actions, such as residents and businesses in the affected areas: for successful implementation of actions, local leadership is a must. Furthermore, the PMU could attempt to increase the involvement of the local technical services which have received the different project studies and tools. This could serve as a basis to the creation of the "transport cells" mentioned in the PRF and as a means to make sure that technical transfer is successful, particularly for the recipients of the VISUM and VISIM licenses: these programs are sophisticated and require dedication and in-depth training; the implementation stage is an excellent opportunity to improve the expertise of the local experts dealing with these programs (and other tools) through practice. Working groups should be formally established as a matter of urgency, once the MoU with both cities are signed, and be backed by a local expert; the PMU should keep minutes of these meetings.

Management Response: [Added: 2016/04/19]

The Project Team generally agrees with the recommendation and will test its feasibility during implementation of Workplan for Outcomes 2 and 3 in 2016. Working groups one established for ITMS preparation in Kazan and Kaliningrad, will be expanded/transformed with their TOR tailored to support implementation of the selected SUT pilots following signature of respective MOUs as per the recommendation above.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
Expansion of working groups for the proposed SUT pilots in Kaliningrad and Kazan.
[Added: 2016/04/19] [Last Updated: 2018/10/28]
Project team 2016/06 Completed Working groups expanded. History
5. Recommendation:

The involvement of additional cities for replication of the project activities should become the main priority within component #4. Thus far, this component has been lagging behind (at least in terms of expenditure of allocated resources). As recommended by the UNDP/GEF RTA and discussed at the PSC in November 2015, replication could be stimulated through some co-funding to the measures in the replicating cities, covering 20-40% of total expenses, and granted through an open call backed by the MoT. Additionally, the PMU should prepare guidance for the submission of adequate proposals from candidate cities; guidance could highlight some of the lessons learnt from Kazan and Kaliningrad, highlighting actions which could be worth of replicating, such as parking management, public transport improvements and pedestrian and bicycle facilities. Partnerships or twinning between Kazan or Kaliningrad and the candidate cities could be promoted, as a way to facilitate transfer of experience. The involvement in this task of one international technical advisor or international consultant, providing experience from similar programs in other countries (e.g. the EU well-known "CIVITAS programme") could help to focus the actions of replicating cities on actual implementation. The call for proposals should be launched as soon as possible (by April 2016), so that replicating cities could have enough time for preparing their actions during 2016 and implementing them early in 2017.

Management Response: [Added: 2016/04/19]

The Project Team agrees with the recommendation to focus Outcome 4 on replication. 5 pilot cities for replication selected in March 2016 according to the following criteria: SUT development priorities such as developing a bicycle infrastructure; creating of pedestrian zones; introduction of parking policy etc., and GHG emission reduction potential. Partnership between Kazan, Kaliningrad and 5 new pilot cities will be effective via technical visits to Kazan and Kaliningrad in order to facilitate transfer of experience, and with methodology support from the Association of transport professionals. CTA’s assistance will help focusing the replication pilots on actual delivery of GHG emission reductions in the project lifetime.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
Complete the tender and select the package of SUT actions for each of the 5 cities, priorities by ER potential
[Added: 2016/04/19] [Last Updated: 2018/11/07]
Project team CTA 2016/03 Completed 4 replication pilots completed for 3 cities, prioritised by co-financing committments, relevance of the pilot, readiness of the stakeholders and the ER potential History
Ensure follow-up with cities, sign agreements
[Added: 2016/04/19] [Last Updated: 2018/10/28]
Project team CTA 2016/05 Completed Agreements with the pilot cities have been signed and pilot/demonstration activities completed. The project is closed. History
Involve CTA as required.
[Added: 2016/04/19] [Last Updated: 2018/10/28]
Project team CTA 2016/12 Completed CTA recruited and supported the project implementation in 2017. History
6. Recommendation:

Component #4 should receive additional resources, from component #1 and, once the actions in Kaliningrad and Kazan are decided and their financing needs assessed (focusing on actual implementation of pilots), from components #2 and #3. Replication activities can offer an excellent alternative to get more cities involved. Although disbursement of component #4 is lagging behind, the remaining resources at the end of 2015 (USD 486.878,41) would be insufficient to support replicating activities in 3-4 cities, including implementation. The assessment of the resources actually needed by Kazan and Kaliningrad can be properly made by April 2016, and the working plan could be changed accordingly by June 2016.

Management Response: [Added: 2016/04/19]

The recommendation agrees with the Project Team, the UNDP/GE RTA and UNDP PSO. According to the new Workplan, the replication activities in 5 pilot cities are  budgeted at USD 627 300.  The budget revision shifting resources required for replication will be prepared in April 2016 for formal endorsement of the UNDP/GEF RTA.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
The Project Team will prepare a budget revision based on the current version of the Workplan, for consideration of the UNDP/GEF RTA.
[Added: 2016/04/19] [Last Updated: 2018/10/28]
Project Team, UNDP PSO. 2016/04 Completed The budget revision was prepared, cleared by RTA and operationalized. History
7. Recommendation:

A business plan for the future association of urban transport planning and management professionals should be prepared. This action of the project working plan has not delivered concrete results yet, and it is crucial for the sustainability of the project and an exit strategy. It is recommended to enter in contact with international associations, which could provide expertise in this field, such as the Association of European Transport (www.aetransport.org), or the world resources institute (www.wri.org). WRI is cooperating with Brazil, China, India, Mexico, and Turkey, within its sustainable urban mobility program (called the EMBARQ network, www.wricities.org/about/embarq-network), with offices in each country offering a good business model for a future Russian association. The future Russian association should gain financial and technical support from local public transport operators and authorities, the academia and the industry. A core of activities for the association could be established based on actions such as the European Mobility Week, the replication of project actions in more cities, or the annual collection of urban transport information based on REC.#2. A business plan for the future association should be established by the end of 2016.

Management Response: [Added: 2016/04/19]

The Project Team generally agrees with the recommendation and confirms its relevance. Some preparatory work and feasibility assessment were made by the Automobile Transport Research Institute, including a comprehensive review of relevant international experience. Once preparatory activities to form the Association are fineliased and the scope of work is defined, the PMU will start looking for a sustainable business model for a the Association. Detailed roadmap for the Association will be developed along the lines listed below as key actions. 

Key Actions:

Key Action Responsible DueDate Status Comments Documents
Establishment of a working group (WG) for the establishment of the Association under the auspices of the MoT Public Council.
[Added: 2016/04/19] [Last Updated: 2018/10/28]
Project Team 2016/04 Completed The WG established History
Through the WG members, establish international contacts in order to get information on similar experiences in other countries.
[Added: 2016/04/19] [Last Updated: 2018/10/28]
Project Team 2016/10 Completed History
Analysis of financial sustainability options in close consultations with local public transport operators, academia and the manufacturers of fleet and relevant infrastructure.
[Added: 2016/04/19] [Last Updated: 2018/10/28]
Project Team 2016/12 Completed History
Development of the financial plan for the Association.
[Added: 2016/04/19] [Last Updated: 2018/10/28]
Project Team 2016/12 Completed History
Finalization of the statue, organizational arrangements and staffing scheme.
[Added: 2016/04/19] [Last Updated: 2018/10/28]
Project Team 2016/12 Completed History
8. Recommendation:

It is recommended to make some changes in the current structure of the PMU. The PMU could be provided with additional resources in order to better cope with the implementation stage ahead, such as (1) increased technical expertise, in order to steer the technical studies towards concrete, ready-to-implement action; (2) wider interaction of the project with the international community (mainly world cities and global networks leading practice in sustainable mobility); (3) more presence in the two pilot cities, being able to put further pressure on local stakeholders for quick decision making and implementation of actions; (4) more intense dissemination and replication of activities, getting the replicating cities fully involved. The following changes could be worth considering, and implemented as soon as possible:

-            Project Manager and Deputy Project Manager. The distribution of the new tasks in this stage should be established. A possible option would be to focus the involvement of the DPM in those activities which can benefit from her proficiency in English, such as interaction with international experts in order to facilitate the implementation of actions in the pilot and replicating cities, and interaction with the international chief technical advisor (new position described below). Interaction with the MoT and with decision-makers would remain the responsibility of the PM.

-            New part-time position: international CTA. This part-time position would provide international expertise on the implementation of disruptive measures, helping the DPM to overcome the barriers that will be probably found in both cities in the coming months. It is estimated than a 40 day contract could be enough to provide the required expertise between April 2016 and June 2017.

-            New full or part-time positions: One local expert in each pilot city (Kaliningrad and Kazan). Even if the PM and the DPM have been regularly travelling to both cities, at this critical implementation stage it would be convenient to have one person in each city (and the corresponding local offices, to be provided by both city administrations, as established in the Pro-Doc) to put the necessary pressure on the local stakeholders in order to comply with the tight project schedule ahead.

Dissemination and replication expert. The PM will need to be supported by an expert for dissemination and replication activities. This project requires a particular profile, combining the usual dissemination capacities (production of material, project profile in Internet, organization of events) with adequate technical background on urban transport, in order to facilitate the communication with candidate cities for replication, and to support the future association of professionals; there is not such profile in the current PMU, and an adequate person should be hired.

Management Response: [Added: 2016/04/19]

We agree in general with the recommendation to strengthen the project team; some of the key actions have been already implemented, such as recruitment of the Replication expert for Outcome 4 (on board  as of February 2016), and the PSO  Communication Specialist to assist the PMU with the dissemination activities, organization of events etc. The following changes were/will be further introduced to the PMU in response to the recommendation:

-PM will be keep the overall responsibility for the technical and strategic leadership for the project, will prepare workplans and closely interact with the MOT, pilot cities’Administration and other key stakeholders in course of their appraisal and implementation; the PM will closely interact with the MOT to ensure tangible results under Outcome 1 as described in response to the Recommendation 1;

-DPM will stay more focused on project outreach to the international community, will interact closely with the international CTA once on board, and support the Replication expert in implementation of replication once the SUT pilot actions for replication are confirmed;

-PMU will be supported with an international CTA.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
Development of ToR and recruitment of international CTA. Once the MOU with Kaliningrad and Kazan for implementation of SUT pilots are signed, the PMU is to consider whether local support in two cities is required to work more closely with the project contractors and relevant authorities, to speed up the implementation of SUT pilots.
[Added: 2016/04/19] [Last Updated: 2018/10/28]
Project team UNDP 2016/06 Completed CTA recruited, local pilots implemented. History
9. Recommendation:

It is worth recalling that an extension of the project is not an option in this case, as UNDP is planning to close operations in Russia by the end of 2017.

Management Response: [Added: 2016/04/19]

The project’s 5-year project cycle ends as of September 30, 2017. The project will request 3-months extension till 31 December 2017 to ensure operational closure; in line with a recently developed PSO exit strategy, a minimum ASL allocation till April 30, 2018 will be  requested for financial closure arrangements, including a final NIM audit for the project.  

Key Actions:

Key Action Responsible DueDate Status Comments Documents
Enhanced monitoring aimed to ensure that the budget delivery targets and implementation milestones are met .
[Added: 2016/04/19] [Last Updated: 2018/10/28]
Project team MoT UNDP 2016/12 Completed Budget and work plan monitoring enhanced, the project delivery improved by the end of the project. The project is completed. History
10. Recommendation:

The PRF has to be revised, including more quantitative indicators based on outcomes. This revision should be done once the pilot actions have been decided, so that these actions can be properly monitored within the PRF. The current indicators in the PRF are related to very general outputs, with no clear link to the project objective of GHG emissions reductions, and do not provide an adequate framework for monitoring progress towards results at this final stage.

Management Response: [Added: 2016/04/19]

CTA will be hired to take care of the PRF revision in consultation with the PMU and key technical experts. 

Key Actions:

Key Action Responsible DueDate Status Comments Documents
Engagement of CTA with one of the key tasks of PRF revision.
[Added: 2016/04/19] [Last Updated: 2018/10/28]
Project Team, UNDP, CTA 2016/06 Completed CTA has been engaged, PRF revised with the consultations with the GEF RTA. History
11. Recommendation:

Stakeholder participation in the project should be increased. Thus far, participation has mainly been channeled through the PSC and three working groups. This has resulted in extensive participation of the academia and research institutes, with minor involvement of the industry, civil society and other groups. The three working groups offer a good platform for enlarged participation. Besides the invitation to additional stakeholders to join working groups' meetings, participation could be further promoted through the preparation of short briefing notes from the working group meetings, which could be made public through the project website. This should also be applied to the two new local working groups suggested in REC.#4.

Management Response: [Added: 2016/04/19]

Recommendation is appreciated and will be implemented through Key Actions described below.  

Key Actions:

Key Action Responsible DueDate Status Comments Documents
To place invitation to participate in WGs at the pilot city administration websites.
[Added: 2016/04/19] [Last Updated: 2018/10/28]
PMU 2016/06 No Longer Applicable [Justification: The project has been completed. ]
History
Issue of a regular bulletin and ensure its broader distribution.
[Added: 2016/04/19] [Last Updated: 2018/10/28]
PMU 2016/06 Completed PMU distributed regular updates and news on the project, including through the social media (facebook) and the project web site. History
12. Recommendation:

The table of expected co-financing should be revised and updated, particularly for the regions and cities involved in the pilots. The current co-financing plans include actions, which were undertaken before the project started or which could have no clear connection with the pilot actions finally retained. It also includes one partner (Liotech) no longer interested in the project. The revision should be made once the actions in the two cities have been agreed upon.

Management Response: [Added: 2016/04/19]

The Project team agrees that the recommendation relevant and will be implemented. The table of co-financing partners will be revised. Liotech Ltd. failed to provide any co-financing as a Pro-Doc defined: during the last 3 years of Project implementation it was revealed that GHG emissions reductions from road transport are not among the companies’ business priorities. Moreover, Liotech Ltd. was declared bankrupt in January 2016 and should now be officially excluded from potential co-financing partners. Kazan city Administration should be listed in the updated co-financing table with already delivered  $392 275 for joint development of the Integrated Traffic Management Scheme for 2014-2020 (ITMS) and $674 870 for creating paid municipal parking spaces in Kazan. In addition, 5 new Project pilot cities should be included into list of Project co-financing partners.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
Revision of the project co-financing table.
[Added: 2016/04/19] [Last Updated: 2018/10/28]
PMU 2016/06 Completed Revised co-financing table submitted to the Final Evaluation team History

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