inspection & maintenance and roadworthiness … & maintenance and roadworthiness program for...

Deutsche Gesellschaft fürTechnische Zusammenarbeit (GTZ) GmbHGerman Technical Cooperation

GTZ Sustainable Urban Transport ProjectKantor Bappeda Surabaya, Ruang Prambanan,

Jl. Pacar No.8 Surabaya 60272, Indonesia Tel 62-31-5353770; alt. 9982484 Fax 62-31 5353770; Alt. 5319287

[email protected]; http://www.sutp.org

Inspection & Maintenance and Roadworthiness Program for Surabaya

A Win-Win Strategy for AllJune 2001, Surabaya

GTZ’s Sustainable Urban Transport Project (SUTP) in Surabaya aims to work with related agencies and the people of Surabaya to devise and implement

policies toward environmentally, economically, and socially sustainable transport in the city.

This will result in a range of “local” economic (enhanced investment cli-mate), social (poverty reduction) and environmental (cleaner air) benefi ts, and will also contribute to a stabilisation of “global” carbon dioxide emis-sions from Surabaya’s transport sector. The project is hoped to provide a

model of how to reduce such emissions from the transport sector in large cities in developing countries.

GTZ SUTP has embarked on an integrated program, including – working closely with the City Government – development of sustainable transport

policies, design and implementation of a public awareness campaign, tech-nical measures to reduce vehicle emissions, enhanced air quality manage-ment capability, adoption of appropriate fi scal instruments and transport

demand management measures, improvement of conditions for non-motorized transport and pedestrians, elaboration of an effective inspection

& maintenance and roadworthiness program, promotion of the use of CNG, a public transport demonstration route including regulatory and

institutional reforms to be applied nationally if successful, and dissemina-tion of international experiences.

GTZ SUTP commenced in Surabaya in 1998 and is due to fi nish in 2001.

Deutsche Gesellschaft fürTechnische Zusammenarbeit (GTZ) GmbHGerman Technical Cooperation


Jl. Pacar No.8 Surabaya 60272, Indonesia Tel 62-31-5353770; alt. 9982484 Fax 62-31 5353770; Alt. 5319287

[email protected]; http://www.sutp.org


Jl. Pacar No.8 Surabaya 60272, Indonesia Tel 62-31-5353770; alt. 9982484

Fax 62-31 5353770 [email protected]; http://www.sutp.org

Inspection & Maintenance and Roadworthiness Program for Surabaya

A Win-Win Strategy for AllReinhard Kolke, June 2001

The fi ndings, interpretations and conclusions expressed in this report are based on information gathered by GTZ SUTP and its consultants from reliable sources. GTZ does not, however, guarantee the accuracy or completeness of information in this report, and GTZ cannot be held

responsible for any errors, omissions or losses which emerge from the use of this information.

For further information:

Inspection and Maintenance and Roadworthiness Program in Surabaya GTZ SUTP, June 2001

4

The author would like to express his gratitude to the Gesellschaft für Technische Zusammenarbeit, Eschborn, for this initial project of an introduction of roadworthiness test requirements in Surabaya. He likes to state a specific appreciation to Mr. Karl Fjellstrom, Project Leader of GTZ “Sustainable Urban Transport Project in Surabaya” who was the main key to all of the necessary local meetings. His effective and valuable assistance allowed to follow and to achieve the ambitious object of a first step for an introduction of an effective roadworthiness test procedure in Surabaya in a very short time.

The author wants to thank all of the staff members, working in the GTZ office in Surabaya for their personal assistance and their interests in the project objectives. He especially wants to thank Mr. Agus Haris, Road Traffic Office of the City Government of Surabaya, for the organisation of technical excursions and his extensive interest in all details of an effective roadworthiness test procedure and for a roadworthiness introduction strategy.

He likes to thank Mr. Helge Schmidt, Mr. Hans-Peter Gehlen and his colleagues at Umweltbundesamt for their short-term supports while he stayed in Surabaya.

Berlin, May 25th, 2001

Reinhard Kolke

[email protected]

Contact at Umweltbundesamt German Federal Environmental Agency Tel.: ++49/(0) 30/8903-2094 Fax: ++49/(0) 30/8903-2106 [email protected]


5

Table of contents Page

1 EXECUTIVE SUMMARY .................................................................................................................. 7

2 INTRODUCTION.............................................................................................................................. 11

3 EXISTING SITUATION ................................................................................................................... 13

3.1. THE “2 IN 1” APPROACH FOR I/M AND SAFETY TESTS .......................................................................... 13

3.2. CURRENT REGULATIONS FOR ROADWORTHINESS TESTS IN INDONESIA................................................. 15

3.2.1 Regulations for I/M Tests in Indonesia................................................................................................. 15

3.2.2 Comparing Regulations for I/M in the Province of Jakarta with the Situation in Surabaya................ 16

4 PROBLEM IDENTIFICATION....................................................................................................... 20

4.1. LOCAL ROADWORTHINESS TEST FACILITY AND PRIVATE WORKSHOP.................................................... 20

4.2. MEETINGS WITH STAKEHOLDERS AND ROADWORTHINESS EXPERTS..................................................... 20

5 PROPOSED IMPROVEMENTS...................................................................................................... 26

5.1. SPECIFICATION OF TECHNICAL REQUIREMENTS AND REGULATORY ..................................................... 26

5.2. SPECIFICATION OF A TENDER PROCEDURE AND PREPARATION OF TENDER DOCUMENTS .................... 36

5.3. SPECIFICATION OF AN IMPLEMENTATION SCHEDULE ............................................................................ 40

6 CONCLUSIONS AND RECOMMENDATIONS............................................................................ 46

7 ABBREVIATIONS ............................................................................................................................ 48

7.1. DECIMAL MULTIPLIERS AND DIVIDERS .................................................................................................. 48

7.2. UNITS.................................................................................................................................................... 48

7.3. GENERAL ABBREVIATIONS .................................................................................................................... 48

8 GLOSSARY........................................................................................................................................ 49

9 BIBLIOGRAPHY .............................................................................................................................. 50

10 ANNEXES........................................................................................................................................... 51

10.1. ANNEX 1: TECHNICAL SYSTEM PROPOSAL FOR CAR TESTING AS DEFINED BY A SUPPLIER .................. 51

10.2. ANNEX 2: TECHNICAL DESCRIPTIONS OF CAR TESTING DEVICES AS DEFINED BY A SUPPLIER ............. 53

10.3. ANNEX 3: TERMS OF REFERENCE FOR A TENDER PROCEDURE FOR THE ROADWORTHINESS TESTING OF MOTOR VEHICLES AND MOTORBIKES IN SURABAYA, INDONESIA......................................................... 63

10.4. ANNEX 4: FORMAL TENDER REQUIREMENTS AND DRAFT OF A CONTRACT FOR THE ENGAGEMENT OF A TECHNICAL SERVICE............................................................................................................................. 71


6

List of Figures and Tables Page

Figure 1: Potential of Emission Reduction for Vehicles without Three-Way Catalytic Converter .............. 12

Figure 2: Possible Strategy for Roadworthiness Test introduction................................................................ 13

Figure 3: Structure of a Roadworthiness Introduction Strategy in Surabaya................................................. 14

Figure 4: Newspaper articles about emission reduction strategies in Surabaya ............................................ 24

Figure 5: Two Lane Test Facility in Surabaya and Three Lane Test Facility in Germany............................ 29

Figure 6: System Proposal for Car Testing [3] .............................................................................................. 29

Figure 7: Estimation of the Number of Vehicles and Motorbikes to be Tested in Roadworthiness Tests Depending on Different Boundary Conditions .............................................................................. 38

________________________________________________________________________________

Table 1: Summary of Emission Reduction Strategies in Europe ................................................................. 11

Table 2: Comparing Benefits and Weaknesses of Decentralised I/M (arguments cited from [4]) ............................................................................................................. 18

Table 3: Initial Individual Meetings to Introduce Roadworthiness in Surabaya .......................................... 21

Table 4: Emission limits in the European Union for Petrol Vehicles........................................................... 32

Table 5: Frequency of Emission Tests in the European Union .................................................................... 33

Table 6: Recommendation for Test Frequencies for Roadworthiness Tests in Surabaya/Indonesia............ 34

Table 7: Estimation of the Vehicle Number to be Tested in Roadworthiness Tests in (1995-1999) [5]...... 37

Table 8: Basics of the Calculation for Cost Estimations of Roadworthiness Tests...................................... 40

Table 9: Suggestion of a Timetable for the Implementation of Roadworthiness Tests ................................................................................................................................................. 1

42


7

1 EXECUTIVE SUMMARY

This report describes formal as well as technical requirements for the introduction of a roadworthiness testing procedure in Surabaya/Indonesia. Based on international experience the procedure is explained for defining and carrying out a tender procedure. The vision is to make a win-win-strategy for all stakeholders become a reality.

The draft of the Terms of Reference for a Tender Procedure (Annex 1) describes the technical requirements of the tender procedure, including requirements for test stations, cost requirements for the test fee to be paid, and requirements for an additional fee that must be paid by the vehicle owner for a mandatory official sticker. These strategies are already implemented in many different countries (e.g. Germany, United States, Lithuania, and others). A precise definition of the formal requirements and an open definition of the conditions, especially a description of the contract, are necessary. These formal requirements and the draft of a contract are summarized in the draft of the Formal Tender Requirements and the Draft of a Contract for the Engagement of a Technical Service (Annex 2).

The introduction of roadworthiness will allow a win-win-strategy for all stakeholders on five different levels:

(1) The City of Surabaya does not have to offer any financial grants to the Contractor but will introduce legal and binding requirements for mandatory roadworthiness tests, combined with fines and legal requirements for all stakeholders. The city can gain income from charging for official stickers.

(2) An international contractor has the chance to implement simple but effective test devices in Surabaya, which require initial investments on the one hand, but the opportunity to start up new businesses in Indonesia on the other hand. A guarantee of specific test fees, as well as fines and other consequences for car users guaranteed by legal enforcement is the benefit for the contractor, who has to supply the devices, train the staff and guarantee test standards.

(3) The local contractor also benefits, creating job opportunities in a start up business that is responsible on the local level of Surabaya for the efficient performance of the roadworthiness tests.

(4) Local repairers and workshops have the opportunity to increase their business for maintenance works and other simple repair works to be done for failed cars. This also creates job opportunities.

(5) The main benefits are for the citizens of Surabaya. Safer and cleaner traffic, a lower number of accidents caused by technical defects, combined with a system creating additional job opportunities, are a real vision to work on.

There is an urgent need not to proceed with the current draft regulation for the introduction of the regulation (City Regulation for Motor Vehicle Testing in Surabaya). Based on this draft of the City of Surabaya the cost for the introduction of roadworthiness could be more than half of a million US Dollar. This money can be saved if an open tender procedure identifies a neutral organisation carrying out the tests on behalf of the government.


8

The Road Traffic Office of the City of Surabaya (Dinas LLAJ Kota Surabaya)1 must have the main responsibility for the roadworthiness procedure and the required regulations. Even if a neutral organisation carries out the tests on behalf of the City Road Traffic Office, there must be the possibility of a legal basis to withdraw the contract in cases of fraudulence or corruption. On the other hand the infrastructure, cost and requirement for training and test devices are too expensive and ambitious to allow the government (e.g. the City Road Traffic Office) to perform the tests by themselves and their own staff.

In addition, a regulation dealing with punishments, fines and sanctions on a legal basis is urgently required, to attract bidders from overseas in a joint venture with a local contractor to implement a roadworthiness procedure. If companies in advance of the official introduction make high investments, they must be able to rely on the fact that vehicles are tested in roadworthiness on a regular basis and that it is not more attractive to pay a fine or get a manipulated certificate. The definition of fines and sanction must be part of the roadworthiness regulations. Useful examples for fines and sanctions to ensure regular roadworthiness testing on all vehicles should consider the following strategies:

• The introduction of roadside tests is needed to insure vehicles are tested regularly.

• The combination of the vehicle registration with the mandatory requirement of a passed roadworthiness test should be obligatory.

• The revocation of the vehicles license should be mandatory, if a vehicle owner has not carried out a roadworthiness test on his/her car.

To ensure this open process, the tender procedure has to be open, reliable, as well as prepared, introduced and followed by an independent Tender Board. The City Road Traffic Office should establish this independent verification and supervision body to identify the best bidder and to enforce controls and guarantee an appropriate service. In the beginning of the introduction process it is recommended that an independent International Expert Group support the independent verification and supervision body of the City Road Traffic Office and the tender process. The expert group should review the tender procedure and audit the process of roadworthiness test performance in Surabaya after a defined period (e.g. after one, two years).

The only useful system of I/M (Inspection and Maintenance) procedures and additional safety checks (which together are referred to as roadworthiness test) is a centralised system with the responsibility on the hand of the government and the contractor, as the winner of an official tender process. Therefore the introduction of a centralized system with a neutral organisation carrying out the tests on behalf of the government is a necessity.

In a decentralized system no Supervision And Control Commission can ensure the effectiveness and quality of the work of hundreds of repair shops competing with each other for the lowest price. Only a defined I/M test standard as well as a unique safety and reliability check standard ensures that all cars comply with the same limits and requirements at the same low cost for the owners. A decentralized system is insufficient for these requirements.

1 Editor: On 29 June 2001 the Road Traffic Office was dissolved into a larger City Communication Office,

which encompasses the former Road Traffic Office, as well as the former Terminals Office and Parking Office. References in this report to the Road Traffic Office are all, however, applicable to the new Communication Office.


9

If the strategy of introducing a simple "I/M module" and a simple "safety and reliability module" on a centralized basis is followed, including all legal requirements and tender procedures, it is very simple to change any module in detail because the infrastructure is already available and easy to influence.

The combination of a charge to pay for the emission and safety certificate and sticker with the test fee for the standardised roadworthiness test guarantees the City of Surabaya incomes for additional project funding. This possibility of an income for the Government only becomes a reality if roadworthiness is implemented as a centralised system with only one responsible contracting company.

An annual and/or bi-annual test fee (depending on the vehicle type) of 100,000 to 150,000 Rupiah per test (10 to 15US$) should be useful under consideration of today’s willingness to pay a bribe of around 18US$ per year (around 90,000 Rupiah per test) on the one hand and test costs of approximately 5US on the other. A tender procedure should consider this amounts to get a proposal from an interested contractor. The bidders for the contract have to provide a proposal, which may include the possibility to offer a cheaper rate for the roadworthiness service.

The introduction of a safety test for motorbikes/-cycles, considering a lower test fee has the potential to increase safety and income for public funding significantly. Therefore the tender procedure should consider that type of motorised vehicle particularly.

Figure: Structure of a Roadworthiness Introduction Strategy in Surabaya

There is a strong need to start the introduction process of a new regulation as soon as possible. But the need for initial discussions should be stronger than the need to draft a "rushed" regulation as soon as possible. A recent prepared on this topic draft already proved to be insufficient. The work on the roadworthiness draft should be guided by established regulations from other countries (e.g. Australia, Europe, Singapore, Germany).

Roadworthiness Introduction StrategyGTZ/SUTP

ExpertCity

Con-sultants

Preparation of a Roadworthiness Introduction Strategy(including emissions (I/M), safety and reliability)

ExpertRegion

Others...

•Testing and Inspection Concept

•Regulatory Requirements

•Manuals for local test stations

•Facility Design

•Equipment Requirements

•Quality Management

•Equipment Qualification Scheme

•Training and Education

•Supervision and Education

•I/M Supervision & Certificate

PreparationPhase

Definition of Tender Principles

Draft of a Tender DocumentOfficial Tender Document and Tender Procedure

Roadw

orthinessIntroduction

Group

Regulatory and

Tender Procedure

Follow Up

•Introduction of Regulatory Requirementscombined with punishments, fines and disciplines

•Awareness Campaign

•Introduction by Contractor, External Audit

ExpertProvince

Main T

ender Board


10

The draft should be discussed before its adoption with international experts and/or expert groups to ensure that there is no lack of regulation as well as no unnecessary raise of regulation requirements. These experts should have a technical background as well as a legal background if possible. The same procedure should be done with the last versions of the drafts of the tender documents, incl. technical, formal and contract documents.

In principle the Road Traffic Office of the City Government of Surabaya should ensure a great participation of all stakeholders in this process (see Figure). But even though, if SOME stakeholders do not work together or do not agree on similar goals and timetables (Table), or if they seem to follow strategies to delay the introduction of the roadworthiness tests, the Road Traffic Office of Surabaya should show the importance of the roadworthiness introduction by concentrating on the main issues instead of postponing the introduction process longer than necessary.

Table: Suggestion of a Timetable for the Implementation of Roadworthiness Tests, in the Form of an Implementation Schedule

6 7 8 9 10 11 12 1 2 3 4 5 6 7 8 9 10 11 12 1 2 3 4 5 61.1. 1.1. 2.1. 3.2.2. 1.2. 2.2. 3.

2. 4.2. 5.2. 6.2. 7.2. 8.2. 9.2. 10.2. 11.3.3. 1.3. 2.3. 3.4.4. 1. First announcement of process4. 2.4. 3.4. 4. 5.5. 1. Local assistance for the process by GTZ (hinge between City Govt. & Int. Experts)5. 2. Translate Regulations, Annexes for Indonesian Drafts from Germany5. 3. Discussion of the legal drafts with the international consultant (if available)5. 4. Access to technical translator for City Road Traffic Office5. 5. Identify and hire legal experts with high skills for impelementation of regulations and laws 5. 6. Identify and invite international expert tender group for the audit of the process (2.11.)5. 7. Invite international expert group for auditing the process after 1 year, 2 years, ...5. 8. Transfer sucessful Roadworthiness Procedure to other Cities and/or National Level

Possible Continuing Assistance (e.g. by GTZ, Worldbank, Others)

Work for Legislation:

Rising Awareness

Definition and Draft of Formal Tender Requirements (incl. Draft of the Contract)

Formal Tender Draft (incl. Draft of the Contract)

First draft of Technical Tender + Formal Tender Requirements (incl. Draft of the Contract) from GTZ

Work for Tender:

Small awareness campaign (Swisscontact for emissions)Regular information about future requirements, benefits, costIntroduction campaign, legal requirements

Suggestion for the Introduction Strategy for Roadworthiness in Surabaya (DRAFT of 2001-05-25)

Month:

Draft of new regulation and annexes

Stop current draft regulation on roadworthiness being prepared by City Govt.

gg gyin Surabaya (DRAFT of 2001-05-25)

Year: 2001 2002 2003

Build up of equipment and stationsDay X: Start of Roadworthiness

Tender Working Group (City Road Traffic Office + legal experts)Legal Experts for Tender Process (formal procedure)

Introduction of Roadworthiness (I/M+Safety)

General cost estimatesIntroduce an OPEN and CLEAR tender process for biddersIntroduce an OPEN and CLEAR identification processs of best bidder

Identification of facilities

Roadworthiness "Informal Implementation Group"

Definition of requirements (discussions, lists, procedures)

Definition and Draft of Technical Tender Requirements

Technical Tender Draft

For the tender procedure and the identification of a contractor a technical tender draft as well as a formal tender draft including the description of the procedure as well as the contract for the technical services are necessary. In the attached Annex 3: Terms of Reference for a Tender Procedure for the Roadworthiness Testing of Motor Vehicles in Surabaya, Indonesia and in Annex 4: Formal Tender Requirements and Draft of a Contract for the Engagement of a Technical Service summarize the necessary boundary conditions and requirements for the whole process.

The implementation of roadworthiness tests is neither extremely sophisticated nor new, but it must be done well and beyond criticism.


11

2 INTRODUCTION

To improve air quality, emission reduction strategies of road transport are needed. As far as no fuel quality standards and emission limits are set on a legal basis for all modes of road transport, an effective inspection and maintenance (I/M) or roadworthiness system is one of the most cost-effective ways to improve air quality in the short term and an essential part of a comprehensive emission reduction strategy for the long term (Table 1). An I/M system for vehicles without emission reduction technologies (e.g. catalytic converters) can result in fuel savings and proportional CO2 reductions, as well as large reductions in pollutants such as particulates, carbon monoxide and hydrocarbons.

Table 1: Summary of Emission Reduction Strategies in Europe

Vehicles in production Vehicles in the field

Type approval Durability Conformity of production

Road-worthiness

In-use compliance

On Board Diag-nosis (OBD)

Vehicle selection

Prototypes of vehicles and

engine families

Serial production or type approval

vehicle

Random sample from the series

production

All vehicles in the field

Random sample from vehicle fleet

in the field


Application Type approval Type approval Sporadically New vehicles after 3 years, then every

2 years

Regularly, if manufacturer audit

not satisfactory

Quasi continuously in use

Measurement procedure

Type approval testing

Durability test (AMA) or

deterioration factor


Short test Type approval testing

Real world conditions

Legal basis European exhaust emissions directives91/44/EEC 92/55/EEC 94/12/EEC 98/69/EC

96/96/EC1999/52/EC

98/69/EC 98/69/EC1999/102/EC

Aimed at Production type approval of

specific design / technology

Production type approval of specific

design / technology

Statistical verification of

series production

Significant dete-rioration; main-tenance; tam-

pering; misfuelling

Type specific misconstruction or insufficient main-

tenance instruction

Malfunction diagnosis and indication for

immediate repair

Influence on emission control

Technology used Durability under testing conditions

Technology used and its realisation

in production

Maintenance condition

Technology and its realisation

Real world dura-bility/maintenance

condition


Philosophy explained,

functions tested

/ Quality control Readiness/Diag-nostic codes

Additional data /

Importance Small, only prototype

Small, artificial test

Increasing, because of

quality control

Medium; test method find only

major malfunctions

Large, real cars under test conditions

Large, real world emissions

Future Self certification of manufacturer

Self certification of manufacturer

Audit Better test; OBD check; safety

check

Check of manufacturers

audits

OBM;safety systems;OBD directive

Vehicles in production Vehicles in the field

Type approval Durability Conformity of production

Road-worthiness

In-use compliance


Vehicle selection


engine families


vehicle


production



in the field


Application Type approval Type approval Sporadically New vehicles after 3 years, then every

2 years


not satisfactory


Measurement procedure





Short test Type approval testing

Real world conditions

Legal basis European exhaust emissions directives91/44/EEC 92/55/EEC 94/12/EEC 98/69/EC

96/96/EC1999/52/EC

98/69/EC 98/69/EC1999/102/EC

Aimed at Production type approval of



design / technology


series production


pering; misfuelling


tenance instruction


immediate repair

Influence on emission control

Technology used Durability under testing conditions


in production




condition



functions tested

/ Quality control Readiness/Diag-nostic codes

Additional data /

Importance Small, only prototype



quality control


major malfunctions



Future Self certification of manufacturer

Self certification of manufacturer

Audit Better test; OBD check; safety

check


audits


Vehicles in productionVehicles in production Vehicles in the fieldVehicles in the field

Type approvalType approval DurabilityDurability Conformity of production

Conformity of production

Road-worthiness

Road-worthiness

In-use compliance

In-use compliance



Vehicle selectionVehicle selection


engine families


engine families


vehicle


vehicle


production


production




in the field


in the field



ApplicationApplication Type approvalType approval Type approvalType approval SporadicallySporadically New vehicles after 3 years, then every

2 years

New vehicles after 3 years, then every

2 years


not satisfactory


not satisfactory



Measurement procedureMeasurement procedure









Short testShort test Type approval testing


Real world conditionsReal world conditions

Legal basisLegal basis European exhaust emissions directives91/44/EEC 92/55/EEC 94/12/EEC 98/69/EC

European exhaust emissions directives91/44/EEC 92/55/EEC 94/12/EEC 98/69/EC

96/96/EC1999/52/EC 96/96/EC

1999/52/EC 98/69/EC98/69/EC 98/69/EC

1999/102/EC98/69/EC

1999/102/EC

Aimed atAimed at Production type approval of


Production type approval of



design / technology


design / technology


series production


series production


pering; misfuelling


pering; misfuelling


tenance instruction


tenance instruction


immediate repair


immediate repair

Influence on emission controlInfluence on emission control

Technology usedTechnology used Durability under testing conditionsDurability under

testing conditionsTechnology used and its realisation

in production


in production






condition


condition

On Board Diag-nosis (OBD)On Board Diag-nosis (OBD)


functions tested


functions tested

// Quality controlQuality control Readiness/Diag-nostic codes

Readiness/Diag-nostic codes

Additional dataAdditional data //

ImportanceImportance Small, only prototype

Small, only prototype




quality control


quality control


major malfunctions


major malfunctions





FutureFuture Self certification of manufacturerSelf certification of manufacturer

Self certification of manufacturerSelf certification of manufacturer

AuditAudit Better test; OBD check; safety

check

Better test; OBD check; safety

check


audits


audits



Currently in Surabaya little other than the basic regulatory framework for an I/M system exists. Inspection is done only of commercial vehicles, every six months. No testing of gaseous emissions is done, and particulates are measured using unreliable equipment and procedures. It is virtually unheard of for a vehicle to fail the I/M test on emission grounds, and very rare that any vehicle fails the test, on any grounds. This runs counter to the common sense observation that many of the heaviest polluting vehicles are commercial vehicles. No roadside random testing or enforcement is performed. No database exists at the testing stations, with test results simply filed in stacks of paper. [1]

For petrol cars without catalytic converter it is known that regular inspection services on the basis of simple I/M procedures can reduce CO by more than 27%, HC more than 13% and NOx by up to 9% in the short test (Figure 1). Expectations for real world emission reductions on the streets estimate a 20% reduction for CO and 10% reduction for HC, as well as fuel savings of approximately 2%.


12

The project started with specific requirements for I/M-procedures, which emphasis on emission tests only. In Surabaya the task of the project was widened to require the introduction of emission tests as well as safety and reliability tests, which are summarised as roadworthiness tests. As the first draft of recommendations for the tender procedure and the presentations prepared, already considered a short and long term strategy – as short term the introduction of emission tests, as long term the introduction of safety and reliability tests – it was easy to merge the two strategies, which allows to meet both requirements in one tender process.

I/M Emission Reduction for Vehicles w./o. TWC

0 %

2 0 %

4 0 %

6 0 %

8 0 %

1 0 0 %

C O H C N O x

B a s is

Im m e d ia te ly : I /M fo rP e tr o l V e h ic le sIn to d u c t io n o f T WC a ta ly s ts

Figure 1: Potential of Emission Reduction for Vehicles without Three-Way Catalytic Converter


13

3 EXISTING SITUATION

I/M authority currently lies with the Provincial level government, but there are strong demands for it to be transferred to the Municipal/Regency level in 2001, demands which are being resisted by the Provincial level. In terms of implementation, however, little will change in the short to medium term if any transfer is made, as the same testing staff and equipment will be used, simply being administratively transferred to the Municipal/Regency level. Therefore all key stakeholders must be part of the development process for a new centralized system of I/M.

The only useful system of I/M procedures and additional safety checks (both summarised as roadworthiness test) is a centralised system with the responsibility on the hand of the City of Surabaya (government) and on the other contractor, as the winner of an official tender process. Therefore the introduction of a centralized system is a necessity and the only way to solve specific problems of tests performed in garages and workshops, including all aspects of reduced legal responsibilities, reduced or missing training requirements for the I/M staff and, importantly, be resistant to corruption. A decentralized system is insufficient for all these requirements.

3.1. The “2 in 1” Approach for I/M and Safety Tests

A roadworthiness test is often divided into an environmental and a safety test. But the tender process can consider both tests as part of an overall roadworthiness test. The combination of an effective I/M procedure and additional aspects of safety requirements is recommended for Surabaya (Figure 2)

Figure 2: Possible Strategy for Roadworthiness Test Introduction

The introduction of a modular basis for the inspection system can take account of specific local circumstances and organizational problems and, last, but not least, ease costs. In the short term running the implementation of roadworthiness test consist of:

Roadworthiness Requirements

Vehicle Environment Protection•Exhaust Emission (I/M)•Oil Loss Reduction•Noise Emission•Others

Vehicle Safety and Reliability•Steering System•Brake System•Wheels & Tyres•Lighting System•Gear & Transmission System•Chassis & Body•Others...

Regulatory Requirements


14

• Simple and improved exhaust emission tests for vehicles without and with TWC

• Steering

• Fuel consumption

• Wheels / tyres

• Corrosion on safety-related parts

• Brakes

• Lights

• Engine power and noise emissions

The following diagram with the I/M Introduction Strategy summarises the main steps to follow for an Introduction of an effective I/M in Surabaya (Figure 3):

Figure 3: Structure of a Roadworthiness Introduction Strategy in Surabaya

The responsibilities will be divided between a “Roadworthiness Introduction group (R I G)” and the official “Roadworthiness Main Tender Board (R MTB)”.

The technical and organizational principles as well as the general conception must be defined by an “Roadworthiness Introduction group” joined by technical experts form all relevant areas, by governmental stakeholders and other interested parties, if necessary.

Representatives of interested groups and responsible stakeholders should participate at the R I G, which should define the tender principles and discuss any specific requirements. The R MTB should be a much smaller “working group” participated by some members of the bigger Introduction group. The Main Tender Board has all responsibilities for the tender process to make sure that the interested technical service that gets the contract meets all specific requirements on the best cost/benefit basis. All responsible staff members of the Road Traffic Office of the City Government of Surabaya should participate the R MTB.

Roadworthiness Introduction StrategyGTZ/SUTP

ExpertCity

Con-sultants

Preparation of a Roadworthiness Introduction Strategy(including emissions (I/M), safety and reliability)

ExpertRegion

Others...

•Testing and Inspection Concept

•Regulatory Requirements

•Manuals for local test stations

•Facility Design

•Equipment Requirements

•Quality Management

•Equipment Qualification Scheme

•Training and Education

•Supervision and Education

•I/M Supervision & Certificate

PreparationPhase

Definition of Tender Principles

Draft of a Tender DocumentOfficial Tender Document and Tender Procedure

Roadw

orthinessIntroduction

Group

Regulatory and

Tender Procedure

Follow Up

•Introduction of Regulatory Requirementscombined with punishments, fines and disciplines

•Awareness Campaign

•Introduction by Contractor, External Audit

ExpertProvince

Main T

ender Board


15

The main short-term requirement will be the establishment of a legal basis for the roadworthiness procedure. The introduction group (R I G) has to identify the part of the government who will get the main responsibility for the regulatory requirements. The situation is currently in a state of flux, but it seems the main responsibilities should held by the City Road Traffic Office.

Additional discussions in advance of the first meeting with the main “players” from government on the national, provincial, regional or municipal level were held.

A kick-off meeting with the Roadworthiness Introduction group (R I G) chaired by GTZ took take place on April 25th, 2001 after an insight in the structures and after several presentation and discussions with the government officials and GTZ/SUTP. A list of the strategic partners for a network and a summary of the meetings is given in Section 5.2.

Specific requirement of a legal basis for punishments, fines and sanctions are urgently required, to attract bidders from overseas in a joint venture with a local contractor to implement a roadworthiness procedure. If companies in advance of the official introduction make high investments, they must be able to rely on the fact that vehicles are tested in roadworthiness on a regular basis and that it is not more attractive to pay a fine or get a manipulated certificate for a bribe.

3.2. Current Regulations for Roadworthiness Tests in Indonesia

There are several requirements for roadworthiness tests in Indonesia. They can be divided into requirements related to:

• Emission tests (Inspection and Maintenance) and

• Safety and Reliability tests.

The overall procedure is called the roadworthiness test. In Indonesia there are several requirements enforced, published as decree or joint decree of different ministries or under discussion at the following levels:

• Central, national level,

• Provincial level and

• City, municipal level.

The following sections summarise some of the main requirements in Indonesia.

3.2.1 Regulations for I/M Tests in Indonesia

CONCAWE reports that the current emissions regulations in Indonesia (Minister of Communications No. KM 8/1989) controls only idle CO and HC emissions from petrol engines and free acceleration exhaust emissions from diesel engines.

As regards test limit standards for existing vehicles - both for I/M and random inspections -, this can be implemented by the provincial government. The national standards (from Decree of the Minister of Environment No. 25 of 1993) specifies only the following minimum requirements for exhaust emission limits:


16

• For 2 stroke motorcycles using petrol with octane ≥ 87: - 4.5% for CO and - 3000 ppm for HC.

• For 4 stroke motorcycles using petrol with octane ≥ 87: - 4.5% for CO and - 2400 ppm for HC.

• For other petrol vehicles with octane ≥ 87: - 4.5% for CO and - 1200 ppm for HC.

• For diesel vehicles other than motorcycles with cetane no. ≥ 45: - 50% > Bosch for diameter of 10 mm or - 25% opacity for smoke.

3.2.2 Comparing Regulations for I/M in the Province of Jakarta with the Situation in Surabaya

Provinces are free to apply their own standards, provided they are at least as tight as the national standards. The DKI Jakarta province applied tighter standards in 2001. Jakarta motor vehicle test limit standards are specified in the Decree of the Governor of DKI Jakarta No. 1041/2000 regarding Emission Standards for Motor Vehicles in the DKI Jakarta Province. The following standards are specified:

A: Petrol fuel

I. Carburettor system

Year of manufacture CO % v/v HC (ppm)

< 1985

1986 – 1995

> 1996

4.0

3.5

3.0

1000

800

700

II. Injection system

Year of manufacture CO % v/v HC (ppm)

1986 – 1995

> 1996

3.0

2.5

600

500

B: Diesel fuel

Year of manufacture Opacity

< 1985

1986 – 1995

> 1996

50%

45%

40%

With the “Decision Of The Governor Of The Province Of The Special Region Of The Capital City Jakarta”, number 95 of 2000 on the “Emission And Inspection And Maintenance System


17

Of Cars In The Province Of The Special Region Of The Capital City Jakarta” the following emission short tests requirements are defined.

• The public workshops 2 and the executing workshops 3 which work on emission tests for private cars.

• The emission quality standards.

• Principles for equipment and inspection technician.

• Principle requirements how to proceed if a vehicle failed a test.

• Principles about the Supervision And Control Commission.

• Principles about sanctions, if a execution workshop violate the requirements.

The execution of the decision shall effectively be carried out at the latest August 2001. Detailed definitions describe requirements which the different repair shops and inspection technicians have to fulfil.

The validity period of the emission test for passenger cars in the province of the special region of Jakarta is one year.

The procedure of a decentralised I/M system at smaller repair shops does not include safety and reliability requirements.

One reason for the introduction of I/M tests at private repair shops is to make sure that the government does not need to invest large amounts of money to the I/M system, while it is said that the available resources are optimised.

The formation of a Supervision and Control Commission in itself cannot ensure the effectiveness and quality of the work of hundreds of repair shops competing for customers with each other, for the best price for a test. Only a defined I/M test standard as well as a unique safety and reliability check standard ensures that all cars comply with the same limits and requirements at same cost for the owner. The centralised roadworthiness test therefore is the solution for both: standardised tests at best cost.

The combination of a government’s fee to pay for the emission and safety certificate and sticker with the test fee for the standardised roadworthiness test guarantees the City of Surabaya incomes for additional project funding.

This gives Government the chance to fund environmental and safety projects in transport. This possibility of an income for the Government is only possible if roadworthiness is implemented in a centralised system with only one responsible contracting company.

The Indonesian Motor Vehicle Industry Association (Gaikindo) summarised opportunities, weaknesses and threats of the system in the Province of Jakarta [4], as given in Table 2:

2 Public workshop is a company which carries out the inspection, correction, repair, and maintenance of motor vehicles for the public against payment.

3 Executing Workshop is a public workshop for motor vehicles which has received the appointment to carry out the Inspection and Maintenance of private passenger cars.


18

Table 2: Comparing Benefits and Weaknesses of Decentralised I/M (arguments cited from [4])

Opportunities Weaknesses Threats

Political will of Government should be good indication for the benefit of workshop involvement.

Limited financial resources of the government create need.

Inspections at workshops are legal (Joint Decree No. 581/99, 551/99)

Many different workshop standards of:

- Testing devices and diagnostic ability,

- Differences in the training (“diagnostic abilities”) of mechanics

- No standards and differences in human resources of similar manufacturers

- No standards and differences in human resources of different manufacturers.

High prices for equipment that is not used regularly.

Lack of information system that saves database on workshops.

Lack of information system that describes facilities, equipment, mechanics, component break down levels.

Refusal by community because of little trust in inspection results from workshops.

Involvement of too many agencies creates overlaps in authority:

− Regular Inspection by Ministry of Communication.

− Workshop business operation by Ministry of Industry and Trade.

Preliminary Conclusions

Even in more developed countries as in some States of the United States of America (e.g. California) or in Germany, where decentralized I/M systems are highly developed, it is an unwritten rule proved by studies, that decentralized I/M systems in workshops is much less effective, e.g. in emission reductions, than the centralized system. But even the so-called “centralized I/M procedure” is not completely centralised. There is still the need for “decentralized” maintenance and repairs in workshops, which need more time than the time- and cost-efficient roadworthiness inspection lane in a centralized test facility.

There is a need for a regular repair and maintenance on vehicles in repair shops. Some workshops may need simplified emission measurement equipment, like a CO tester for low cost. This means approximately 2,700 US$ for a 4 gas-analyser instead of approximately 6,000 US$ for a 4-gas analyser and opacity measurements including non-manipulating software and printer, as used on a regular basis for emissions tests every 10-15 minutes in the test facilities.

CO testing equipment is already used in most dealership workshops (e.g. Daihatsu, Isuzu, Toyota) in Indonesia. Therefore no additional investments are required for many workshops, while the regular low cost maintenance business (a regular check is cheaper than a check after a failed test) will increase, if it is impossible to manipulate the I/M procedure.


19

If the strategy of introducing a simple "I/M module" and a simple "safety and reliability module" on a centralized basis, including all legal requirements and tender procedures is followed, it makes it simple to change any module in detail (e.g. with the introduction of international standards like ASEAN harmonized EURO 1 by 2003) because the infrastructure is already set and easily influenced by government.

It is also attractive because these requirements can be introduced relatively quickly on the regional level as well as on the national level (centralized, if required), because the centralized systems complies with international standards and structures.

Outlook for I/M in decentralized systems

Even in a centralized system, the workshops interested in making a repair business need simple I/M equipment for repairing purposes. Therefore it makes sense that even in a centralized system the I/M equipment can be used in decentralized garages, but without the possibility of "official fail or pass decisions", which means that the owner can get the I/M certificate from the centralized I/M centre only.

Once the possible cost of the I/M procedure (how much car owners can afford to pay) are identified, once a legal basis is available and once a tender procedure is done, there is a “self-running” system without additional cost for the Government, but benefit for the environment.

If “The Governor Of The Province Of The Special Region Of The Capital City Jakarta” may change to a centralised I/M emission check system, the development made in Jakarta makes sense and will be cost effective, as workshops will regardless need simplified emission equipment. This equipment needs a standard, but does not have to comply with one single standard testing devices and diagnostic ability (see “Weaknesses” in Table 2). Therefore the workshops that did get the test equipment by Swisscontact and joined the program on a voluntary basis can use it for future purposes as well with the additional benefit of participating with their program in an early stage of the development.


20

4 PROBLEM IDENTIFICATION

To identify the current problems with the absence of a roadworthiness procedure for passenger cars and motorcycles as well as with the absence of an effective roadworthiness test for buses and commercial vehicles, site visits were to the provincial test facilities as well as to a private workshop of a local car dealer.

The results of the identification of the current problems were presented and discussed with all relevant stakeholders in Surabaya. Improvements and implementation strategies for an effective roadworthiness procedure as part of a win-win-strategy for all stakeholders were proposed and discussed. The main results of the site visits and meetings are summarized in the following paragraph.

4.1. Local Roadworthiness Test Facility and Private Workshops

The main objective of this technical excursion to a local roadworthiness test facility for buses, light and heavy-duty vehicles run by the Provincial Road Traffic Office in Surabaya and of a private workshop (Toyota) allowed to describe the state of the art of the current roadworthiness tests procedure in Provincial test facilities and on the other hand, to proof the availability of test equipment in Surabaya’s private workshops. The test performances at the Provincial test facilities were completely ineffective because of:

1. defective and poorly maintained test equipment 2. test mechanics that obviously had no knowledge how to use the test equipment, and 3. complete absence of any vehicles to test at 10am in the morning of a working day.

The test facilities at the Toyota dealer in Surabaya were of a convincing technical state of the art for safety checks (brakes, car lifter for vehicle check, etc.) and emission tests (e.g. CO tester, engine tuning tester). The costs of an overall check (emissions, tuning, safety checks and simple repairs) at a premium quality workshop for a passenger car as specified as approximately 220,000 Rupiah (22 US).

While the necessary test equipment (break test, CO-test, wheel suspension, car lift) is available and maintained in private workshops on different places for repair and maintenance purposes, it looks suspicious that test are never performed in Provincial Test Facilities, but certificates are sold every six month. Some reliable sources stated that 70,000 – 90,000 Rupiah (approximately 7-9 US$) are paid twice a year as a bribe to get the necessary certificates illegally. All results were shared in the following meetings.

4.2. Meetings with Stakeholders and Roadworthiness Experts

The following stakeholders were identified for the introduction process of roadworthiness:

1. City Planning Board of the City Government of Surabaya 2. Physical and Infrastructure Division of the City Planning Board of the City of

Surabaya 3. Road Traffic Office of the City Government of Surabaya (the city level leading

agency for roadworthiness, responsible for regulations) 4. City Environment Division of Surabaya 5. Road Traffic Office of the Provincial Government (currently doing the tests)


21

6. Current test facilities operated on behalf of the Road Traffic Office of the Provincial Government

7. Politicians of the City Council 8. Environmental Agency of the Province 9. Police as the responsible office for vehicle registration, vehicle licenses and

centralised data base 10. Business Association, Media, Others.

The following paragraphs summarize the main meetings and discussions as well as their objectives and results during the author’s presence in Surabaya.

I. Initial meetings started on Monday, April 16th, 2001 with the goals to introduce the principle need for roadworthiness tests, the strategies and the requirements of legal work in advance and in parallel of a tender procedure, as well as to answer any open questions.

The main goal was to initiate the implementation of the “Roadworthiness Introduction group” for emission tests and safety issues (Table 3):

Table 3: Initial Individual Meetings to Introduce Roadworthiness in Surabaya

Mr. Cholik Head of the City Planning Board of the City Government of Surabaya (Kepala Bappeko Surabaya)

April 16th, 2001

Mr. Tri Siswanto

Head of the Physical and Infrastructure Division of the City Planning Board of the City of Surabaya (Bappeko Surabaya)

April 16th, 2001

Mr. Ramelan Road Traffic Office of the City Government of Surabaya, Transport Section (DLLAJ Kota Surabaya)

April 16th, 2001

Mr. Bergas Road Traffic Office of the City Government of Surabaya, Traffic Section (DLLAJ Kota Surabaya)

April 16th, 2001

Mr. Agus Haris Road Traffic Office of the City Government of Surabaya, Technique and Infrastructure (DLLAJ Kota Surabaya)

April 16th, 2001

II. A first meeting with stakeholders took place on April 18th, 2001. The main aim was the discussion of roadworthiness requirements and the establishment of a Roadworthiness Introduction group (R I G).


22

Agenda of the 1st Meeting of the Roadworthiness Introduction group

1. Definition and Introduction into Roadworthiness testing a) description of test (emission test, safety, reliability) b) experience with Roadworthiness c) requirements for Roadworthiness tests d) discussion of principles

2. Roadworthiness in Surabaya a) the simple “Two-in-One Solution” b) Cost requirements and “profits” for the government c) Tender Procedures

3. Formation of a Roadworthiness Introduction group a) Nomination of the responsible Agency b) Nomination of the chairman

4. Other matters

The following stakeholders were invited:

1. Bp. Bambang DH, Wawali Kota Surabaya 2. Bp. Cholik, Kepala Bappeko Surabaya 3. Bp. Tri Siswanto, Bappeko Surabaya 4. Bp. Soerjadi, Kepala Bagian LH Kota Surabaya 5. Bp. Afta, Kepala Bagian Humas Kota Surabaya 6. Bp. Bambang Suprihadi, Kepala Dinas LLAJ Kota Surabaya 7. Bp. Bergas, DLLAJ Kota Surabaya 8. Bp. Agus Haris, DLLAJ Kota Surabaya 9. Bp. Ramelan, DLLAJ Kota Surabaya 10. Bp. Moh. Sulaiman, Kepala Bapedalda Propinsi Jatim 11. Bp. Sukis Mantoro, Dinas LLAJ Propinsi Jatim 12. Bp. Suban Wahyudiono, Unit Pelaksana Teknis PKB, DLLAJ Propinsi Jatim 13. Kasatlantas, Satlantas Polwiltabes Surabaya 14. Ibu Ira Tursilowati, Bagian Hukum Kota Surabaya 15. Bp. Asmoro Hadiwijoyo, Ketua Persatuan Manajemen Indonesia Cabang Jatim 16. Bp. Suparno, Kanwil Perhubungan 17. Mr. Reinhard Kolke, Umweltbundesamt, GTZ SUTP.

The main task of this meeting was to introduce the principles of an effective roadworthiness procedure and their legal requirements. An in depth discussion did not take place at this initial meeting. Due to the invitation in short term and other reasons not all invited stakeholders joined the meeting. But to make sure that in the long term all interested parties follow the same principles, these initial meetings are essential.

III. Another meeting took place on April 19th, 2001 with Mr. Bambang Suprihadi, Head of the Road Traffic Office of the City of Surabaya, and staff member of the “Roadworthiness Group”.


23

A presentation was made and handouts of the transparencies were provided. The principles of roadworthiness tests in Europe compared to experience from testing stations in Surabaya with poor performance on the one hand and experiences from an Indonesian workshop with high quality performances of safety tests and emission adjustments on the other hand, were discussed.

The main conclusion resulted in the urgent need not to proceed with the current draft regulation for the introduction of (City Regulation for Motor Vehicle Testing in Surabaya) being prepared by the City Road Traffic Office, as it was proven by the presentation to be highly inefficient.

It was recommended to combine a comprehensive technical regulation, consisting of a regulation and additional annexes to explain - test requirements, - test station requirements, - testing-staff requirements, and - other matters. This will be much more efficient than the incomplete legal instrument currently being prepared.

In addition the regulation currently being drafted will require the Government to make large investment in staff members, test devices and test facilities to run the test stations.

On the other hand a reliable regulation, combined with efficient enforcement will result in foreign companies building joint ventures with Indonesian companies and investing in the country. Additionally the Government need not spend money, but can rather earn money with the system by combining the test fee with an additional government fee. But international companies will invest in the country only if the boundary conditions are reliable. This must be part of efficient legal requirement and their enforcement.

Summary of the Discussion:

The following discussion between Mr. Setiono, Mr. Imam Syuhri, Mr. Basuki, Mr. Agus Haris (partly) and Mr. Kolke came to the following conclusions:

1. The need for the introduction of a “INFORMAL ROADWORTHINESS INTRODUCTION GROUP” joined by all interested parties was highly recommended, to ensure that a legal draft is agreed by most parties and not disagreed on a late stage of the draft. This INFORMAL GROUP needs regular meetings, to ensure that all interested parties have the chance to join the process.

2. The consultant reiterated that comparable and easily applicable regulations are available from many other countries.

3. The consultant explained the need for strategic discussions in advance of a legal draft, to make sure that potential problems can be identified and solved as soon as possible.

4. The requirement to work for (1.) a legal draft, (2.) a technical tender document, (3.) a formal tender document, and (4.) an awareness campaign was emphasised.


24

5. The group of DLLAJ Kota Surabaya decided that a first meeting of the “Informal Roadworthiness Introduction Group” should take place in the following week. It took place on Wednesday morning (April 25th, 2001) by invitation of the Secretary of the Planning Board of the City of Surabaya (Bappeko Surabaya).

On the basis of this discussion a first draft for a timetable was prepared, which was discussed at the “Informal Roadworthiness Introduction Group” meeting on April 25th (Table 9).

IV. A meeting with the head of Environmental Agency of the Province took place on April 20th, 2001. The head of the Agency took note of the possibilities for an introduction of roadworthiness tests on a city level and the recommendations as given by Mr. Karl Fjellstrom, GTZ and Mr. Reinhard Kolke, consultant.

V. On April 23rd, 2001 a presentation by Mr. Karl Fjellstrom for the responsible heads of the city government agencies and the vice major about the GTZ program for a “Sustainable Urban Transport Project In Surabaya” was given. The opportunity was taken to give a short introduction about the principles of roadworthiness testing and to emphasise the urgent need to withdraw the draft of a legal regulation (City Regulation for Motor Vehicle Testing in Surabaya) currently being prepared, as it was proven to be highly inefficient.

VII. On April 24th, 2001 a presentation was given to the chairman Commission D of the City Council. As the City Council must sign the local roadworthiness test regulations this meeting was of high importance to make sure that the draft of the inefficient legal regulation (City Regulation for Motor Vehicle Testing in Surabaya) will not be signed by the City Council before an efficient procedure is identified and an effective legal regulation is drafted.

VI. In the Evening of April 23rd, 2001 a presentation including a discussion was given to two journalists from different local newspapers (Radar Surabaya and Jawa Pos) about the need for an introduction of roadworthiness test requirements. Some additional questions were raised from one journalist about policies to promote bicycle use (Figure 4).

Figure 4: Newspaper articles about emission reduction strategies in Surabaya


25

One of the main recommendations given by the head of the City Council was the City of Surabaya’s possibility to provide land for test facilities at no cost to a contractor to reduce the overhead allocation cost for the test facilities. This allows lower test fees for the roadworthiness test. This idea should be followed for future strategies.

VIII. On April 25th, 2001 another meeting of the Roadworthiness Introduction group (R I G) took place. The meeting was joined by members of the City Transport Agency, the City Planning Board and from members of the Provincial Agencies for Transport and for Environment.

The main conclusion of the meeting was that the group agreed to the implementation of the “Roadworthiness Introduction group”. It was taken note of the fact that the implementation of an efficient roadworthiness system (incl. the tender procedure) needs approximately 12 to 14 months of time. Questions were raised, including:

1. which strategies should be followed to convince the City Council to withdraw their support for the current draft of a roadworthiness regulation (City Regulation for Motor Vehicle Testing in Surabaya) and

2. if a trial run (as well as travel funds) should be introduced in advance.

The R I G has to examine strategies to get into discussion with the City Council. A submission which explains the need to withdraw the current draft, including a revised schedule to work on should be sent to the City Council as soon as possible.

As experience of introducing and performing roadworthiness tests are available worldwide, the idea of a trial of a very well known instrument like roadworthiness testing does not make much sense.

Some additional ideas arose during the meeting, such as the possibility of a decentralised roadworthiness test, which was discussed in detail. As the decentralised system is much more expensive for all stakeholders, much less efficient and it is impossible for the government to control the procedures, only the centralised systems combines all benefits. Details about the weaknesses of decentralized roadworthiness and I/M systems are summarised in Paragraph 3.2.2.


26

5 PROPOSED IMPROVEMENTS

In order to attain a lasting and successful adjustment of the vehicles to the requirements laid down by local government, regular vehicle inspection is a joint function of both local government and the inspection contractor for the test centres. This requires a regular, two-way flow of information between them.

5.1. Specification of Technical and Regulatory Requirements

The following specifications must ensure that the introduction of roadworthiness in Surabaya will meet the goals of emission reductions, and environmental and safety requirements. A modular system can be extended step by step to meet the requirements of changes in fuel, automotive technologies and for additional environmental requirements.

For the specification of the main elements of an effective roadworthiness system in Surabaya some principle aspects must be defined for the centralized vehicle inspection stations, where the periodical vehicle inspections take place. The number of inspection lanes (test device) required will be based essentially on the volume of inspections expected. The number of inspections depends on the total vehicle stock as well as the inspection intervals. A number of further factors also have to be taken into account when determining the size of the inspection stations and the number of inspection lanes, especially:

• Inspection intervals for different vehicle types

• Number of inspections per lane (test device) and per day

• Experience of staff

• Analysis of the vehicle stock

• Technical condition and age of the vehicles

• Number of working days per year

• Growth rate for the vehicles fleet to be tested.

Inspection Centre with Automatic or Manual Inspection Lane

The design of an inspection centre depends on the size, equipment and number of vehicles in the area. The technical staff can control the inspection sequence itself automatically or manually.

The decision for or against a fully automatic inspection centre depends on a number of factors. One of the most important factors, the price, is many times higher for a fully automatically inspection lane than for a manually controlled facility. The reasons for this are the more expensive inspection instruments and the computer system required including the necessary software. The more expensive equipment for automatic inspection lanes is more susceptible to malfunction and necessitates a greater maintenance effort. The climatic conditions (temperature, humidity, etc.) should be taken into account as well.

Based an today’s experience the following staff requirements for a stationary single lane facilities are:


27

• 1 station manager

• 3 technicians

• 1 administrator.

For centres with more than one lane the staff increases less than the number of lanes.

Mobile Inspection Centre

In areas with small numbers of vehicles it could be useful to use a mobile test centre. The mobile inspection facility requires 2 technicians only. The two inspectors usually test 10 vehicles per hour based on the German roadworthiness test requirements (safety and emissions).

In addition to this, an overall management must be continuously built up to be responsible for the finance and accounts, staff administration, staff training, construction and maintenance of the facilities and equipment, and for centralized data acquisition and data processing. If an international contractor will run the I/M program in Surabaya, the number of the staff for the overall management has to be reduced to the necessary minimum. In the initial phase the number of experts required for the program will certainly be higher.

Principle inspection requirements

When a technical inspection system is introduced into an existing traffic situation, the general condition of the vehicles must be taken into account. As a rule this means that the requirements for the vehicle inspection must initially be kept to a useful minimum. The scope of the inspection must nevertheless ensure that the emissions and the most important parts of the vehicle, e.g. brakes, steering and lights, are covered. The standard of the inspection can then be raised without modifying the inspection system in order to reach the intended international standard.

Inspection centre network (ICN)

There is the need for a solution for a regional inspection centre network (ICN), including all aspects of planning, construction with local partners and operation of the local ICN. If an international contractor will run the ICN, its main duty is to operate the inspection centres essentially with appropriately trained local staff. In this way the planning and start-up of the inspection system can be implemented in the shortest possible time and at low cost by competent expert staff.

Training

To introduce the system effectively, restrictions with regard to inspection centres, kinds of vehicles and speed of inspections should first be taken into consideration. Because of the necessary continuous training of the local staff, a substantially lower vehicle throughput must also be expected at the beginning.

General

The contractor has to ensure responsibilities for the inspection of all kinds of vehicles, including:

• Standard inspection procedure for the whole region


28

• Equal treatment of all customers by standard application of the law

• Uniform standard of staff training and of the different kind of jobs to do

• Attainment of a uniform quality and safety level

• Uniform data acquisition and data processing to provide statistics for emission control and traffic safety

• Continuous uniform adjustment of the inspection standard to changing requirements (introducing safety requirements) and vehicle fleets (introducing of unleaded fuels).

Requirements for training of the technical staff

The contractor has to offer regular trainings for the emission test staff to guarantee that the trainees will become specialists in their own intended field of activity. On the other hand the trained specialists needs a general view of the structure of motor vehicle inspection as well. This must enable him to understand the principles within which he is working and to convey to the customers the benefits of Inspection and maintenance of motor vehicles.

The working documents for different categories of staff must be prepared in a comprehensive way to make sure that even after the training -the staff has the possibility of easy access to reference and solutions of problems by using the documents placed at the disposal of each employee.

Each trainee must have to pass an examination at the end of the training lessons in order to demonstrate his sufficient knowledge and practice, which is required for recognition as an expert in vehicle testing.

Dimension and Locality of the Stationary Inspection Centre

To determine the optimum size for the inspection centres, a number of factors must be taken into account, e.g.:

• Volume and number of inspections

• Size of sites available

• Possibility of noise emissions from vehicles tested

• Road size and road system in the area of the planned sites (infrastructure)

• Accessibility for the customers

• Availability of electricity, water, etc.

Depending on current experience in Surabaya with test facilities for buses and commercial vehicles, a two lanes test facility of the same space as today used in Surabaya has the size as needed (Figure 5) and which is similar to the space in Germany. This means a housing of approximately 30-40m by 20m length by width for a two-lane test facility and a parking lot in front of the housing.


29

An interim solution can be the use of a large tent equipped with all necessary devices (Figure 6) that can reduce space requirements significantly. One tent needs approximately 8-10m by 5-7m; additional space for parking lots to line up the waiting cars is required as well. The main disadvantage of this alternative using a tent or a smaller device is the fact that the number of vehicles which are possible to test decrease significantly as the test devices which are just used for short tests (e.g. light test, brake test) are obstructed while testing other parts of the vehicles.

Figure 5: Two Lane Test Facility in Surabaya and Three Lane Facility in Germany

Figure 6: System Proposal for Car Testing [3]


30

Basic Structure of the Stationary Inspection Centres

A small sized modular inspection centre can be used to test cars, trucks, trailers, buses and motorcycles as well. While motorcycle must comply with the same safety requirements as passenger cars, the requirements for emission tests for motorbikes/-cycles are still under discussions (e.g. high HC-emissions from unburned oil must be trapped in front of the emission measurement cell to protect the measurement equipment).

A modular concept can be extended for higher numbers of vehicles by adding further modules to the existing building.

Cost of Roadworthiness Test Equipment

The cost of the equipment varies highly on the specifications. The price of the test equipment as described in the Annex 2 (Section 10.2), but excluding the cost for the car lifter will be between 22,000 US$ and 32,000 US$. These costs do not include the installation and construction. The cost per test depends highly on additional parameters than the test equipment cost only, such as cost for the facility sites, cost for construction, cost for the staff and for their training. Some general estimations and calculations about the cost for the test – depending on the boundary conditions - are given in Section 5.2.

Available Vehicle Data

The following data are collected by the Police on a Provincial level and used for the vehicles license papers:

Personal and Area Identification Information Vehicle or Motorcycle Identification Information4

- Police number - Owners name - Make and Model - Manufacturer Year

- Owners ID number - License plate colour*) - Engine displacement - Chassis Number

- Area license code - Registration number - Engine Number - Required Fuel

- Period of validity - Vehicle Weight *) Yellow: public transport; red: government vehicle; black: others

Some of these data (bold) already available are of interest for the roadworthiness procedure and the test statistics and may be used for parts of the information network system.

Particular Procedures for CNG Vehicles

The emission and safety tests for CNG vehicles are similar to vehicles with petrol engines. If the vehicle is equipped with an additional CNG system with a petrol system (bivalent system) the emission test can be made with the use of petrol only, and additional tests can be performed with natural gas. The emission limits can be used as recommended below (compare Table 4). For Indonesia/Surabaya an initial I/M emission limit for CO at idle is sufficient for natural gas and petrol vehicles. The limit should be set at a value between 3.5

4 The data are a summary from a private motorcycle license.


31

and 4.5 % v/v if the vehicles are not equipped with catalytic converters. Otherwise a limit of 0.5 % v/v should be set.

For safety tests at CNG-vehicles as part of roadworthiness, additional safety checks of the CNG storage system and CNG high-pressure valves are recommended.

Requirements for EU Member States and EU Accession Countries

An effective strategy for the introduction of specific requirements is the use of international regulation, successfully implemented in other nations. Useful examples are European emission requirements for Inspection and Maintenance as well as requirements for roadworthiness tests. In Europe Directive 92/55/EEC (June 1992), amending Directive 77/143/EEC, legislates in-service emission limits in vehicle roadworthiness tests. To guarantee effective testing, it was indispensable to establish the principle of the Member States responsibility for roadworthiness testing. However, in response to practical organisational demands and in the interests of making the administrative procedures faster and more flexible, provision had to be made for delegating the task of carrying the test out to approved bodies or experts. These are under the supervision of the public authorities and answerable at all times for the tasks entrusted to them. The operation of the directives therefore depends on choosing a form of testing among:

- A neutral organisation carrying out the tests on its own premises, or - a neutral organisation carrying out the tests in garages, or

- testing by and in approved garages, and

- setting up the approval procedures.

The choice of the form of testing will have a clear bearing on the amount of direct and indirect costs (investment costs for land, buildings, facilities, equipment, staff and training, etc.). Hitherto, rather than aiming at total harmonisation, Community rules (Directive 77/143/EEC and amendments) have adopted the approach that standardisation should be restricted to the essential items (obligatory nature and frequency of inspection, list of the equipment or vehicle parts generally subject to inspection, minimum standards for braking systems and exhaust emissions, mutual recognition of compliance testing) to achieve the goals mentioned above. A step-by-step introduction of the different roadworthiness requirements is recommended to the EU accession countries.[6]

Given the infrastructure they imply, however, it is recommended for the European Union accession countries that commercial vehicles, coaches and buses (frequency and list of items to be inspected) are targeted first (Directive 77/143/EEC). The extension of these measures to the other categories (light vehicles (Directive 88/449/EEC) and private cars (Directive 91/328/EEC)) can be deferred to a second stage. The same may hold for the minimum standards for braking (Directives 92/54/EEC et 94/28/EEC) and emissions (Directive 92/55/EEC), which apply, however, to all vehicle categories ("Small steps" (step-by-step) policy).

Emission Requirements in the EU for Spark Ignition Engines

For Spark Ignition Engines the following requirements for the emission tests are needed:

Emission Test Requirements for Spark Ignition Engines (92/55/EEC)


32

1. A visual inspection to ensure that: - There are no leaks from the exhaust system. - If applicable, any emissions control system in present.

2. An idle CO-test, details as follows: No load idle test, carried out after the manufacturer’s recommended pre-condition period (e.g. warm engine or oil temperature 80°C). The limit values must be defined (e.g. 92/55/EEC).

3. An additional increased idle speed test is required for vehicles fitted with 3-way catalysts and lambda control.

The required emission limits for a simple idle test for spark-ignited petrol engines are summarized in Table 4 and should be used in Surabaya as well.

Table 4: Emission limits in the European Union for Petrol Vehicles

Vehicle Description Idle CO (% v/v, %-Volume)

All Models not fitted with 3-way catalyst and lambda control

Initial Type Approval Limit1) or 0.5 max.

Where these data are not available or Member States of the European Union decide not to use these reference values, the following limits will apply Manufactured before October 1986 2) 4.5

Manufactured after October 1986 3.5

All Models fitted with 3-way catalyst and lambda control 3)

Either initial type approval limit or 0.5 max.

1) These Type Approval Data will not be available for Indonesia 2) Or the date on which member states of the European Union required the vehicles on first registration to

comply with the Type Approval Directive 70/220/EC, as amended. 3) An additional no load test is to be conducted at a minimum idle speed of 2000 rpm. The following limits

values apply: CO: 0.3 % v/v maximum. Lambda: 1 ± 0.03, or in accordance with the manufacturers specifications.

For Indonesia/Surabaya an initial I/M emission limit for CO at idle is sufficient for petrol vehicles without catalytic converters. The limit should be set at a value between 3.5 and 4.5 % v/v in the short term. Emission limits for petrol vehicles with catalytic converters should be set to 0.5 % v/v.

Emission Requirements in the EU for Diesel Vehicles

The test procedure consists of a free acceleration smoke test. That is, the engine is accelerated with transmission in neutral (no load) from idle up to maximum (governor cut off) speed and the smoke opacity is measured. The following maximum coefficient of light absorption is allowed:

Either initial type approval limits plus tolerance of 0.5 m-1;


33

Or where these data are not available or Member states decide not to use these reference values, the following alternative maximum values will apply:

Naturally aspired diesel engines: 2.5 m-1 Turbo-charged diesel engines: 3.0 m-1

For Indonesia an initial I/M emission limit for Opacity at free acceleration is sufficient for diesel vehicles. The limit for the maximum coefficient of light absorption should be set at a value between 2.5 m-1 (naturally aspired diesel engines) and 3.0 m-1 (turbo-charged diesel engines).

Frequency of I/M Emission Testing

Table 5 summarises the ages of vehicles at which emission testing should initially start and the frequency of that testing.

Table 5: Frequency of Emission Tests in the European Union

Vehicle Description Age of the new vehicle for an initial I/M emission test

Test frequency (years)

Spark ignition engine passenger cars with 3-way catalyst

3 1

Heavy commercial vehicles, taxis, ambulances

1 1

Commercial diesel vehicles (less than 3.5 tons)

4 2

Recommendation for the Frequency of Emission and Safety test in Indonesia

For Indonesia the following Frequency of emission tests and safety tests are recommended (Table 5). The main strategy is an annual simple emission test only for all vehicles without catalytic converter and for all vehicles with high annual vehicle mileage (e.g. buses, heavy duty vehicles, taxis). These “high mileage vehciles” should be tested for safety on an annual basis as well. The only vehicle types to test bi-annual for safety are passenger cars. Similar test frequencies are performed in other countries (e.g. member states o the European Union, States in the United States of America). A summary of the recommended test frequencies for Surabaya is given in Table 6.

Motorbikes/-cycles should be tested on a regular basis as well to increase the average safety standards and to reduce the number of accidents, caused by missing safety requirements (e.g. brakes, steering, tyres).


34

Table 6: Recommendation for Test Frequencies for Roadworthiness Tests in Surabaya/Indonesia

Frequency of Roadworthiness Tests

Vehicle Type Frequency of Initial Test for New Vehicles

Frequency of I/M Emission Tests

Frequency of Safety Tests

Vehicles without catalytic converter and without closed loop catalytic converter

Vehicles without catalytic converter

24 months 12 months 24 months

Vehicles without closed loop 3-way catalytic converter


Passenger cars for public transport (taxis, busses)


Vehicles with Diesel Engines up to 3.5 t gross weight

Passenger Cars 36 months 24 months 24 months Passenger cars for public transport (taxis, busses, rental)


Others 24 months 12 months 12 months

Vehicles with Diesel Engines of more than 3.5 t gross weight

All Vehicles (busses, heavy duty vehicles)


Vehicles with 3-way catalytic converter (after introduction in Indonesia)

Passenger Cars 36 months 24 months 24 months Passenger cars for public transport (taxis, busses, rental)


Others 24 months 12 months 12 months

Motorbikes/-cycles

All Motorbikes 24 months Not in use. 24 months

Organizational Structure

The Road Traffic Office of the City Government must have the main responsibility for the roadworthiness procedure and the required regulations. Even though if a neutral organisation carries out the tests on behalf of the Road Traffic Office, there must be the possibility of a legal basis to withdraw the contract in cases of fraudulence or corruption.

The City Road Traffic Office should establish an independent verification and supervision body to enforce controls and guarantee and appropriate service. Members of this supervision body should report regularly to the City Board of Surabaya.


35

Assistance by an International Expert Group

In the beginning of the introduction process it is recommended that the independent verification and supervision body of the City Road Traffic Office and the tender process is supported by an independent international expert group. The members must have a roadworthiness experience of a minimum of 5 years. The expert group should review the tender procedure (see 5.6 in) as well as auditing the process of roadworthiness after a defined period (e.g. after one, two years) of roadworthiness tests in Surabaya (see 5.7 in Table 9).

Fines, control and verification structure

In addition a regulation dealing with punishments, fines and sanctions on a legal basis is urgently required, to attract bidders from overseas in a joint venture with a local contractor to implement a roadworthiness procedure. If companies in advance of the official introduction make high investments, they must be able to rely on the fact that vehicles are tested in roadworthiness on a regular basis and that it is not more attractive to pay a fine or get a manipulated certificate for a bribe. The definition of fines and sanction must be part of the regulations. Useful examples for fines and sanctions to ensure regular roadworthiness testing on all vehicles should consider the following strategies:

• A useful example is the introduction of roadside tests to examine vehicles if they are tested regularly (e.g. testing a number of 10 % of the annual tested vehicles at roadside vehicle inspection tests).

• The additional combination of the vehicle registration with the mandatory requirement of a passed roadworthiness test should be obligatory.

• The revocation of the vehicles license should be mandatory, if a vehicle owner has not carried out a roadworthiness test on his/her car.

Roadside Vehicle Inspection Tests for Verification

The procedure of roadworthiness, including inspection and maintenance (emissions) and safety and reliability tests will also consider roadside vehicle inspection tests. The tests should be carried out on a random. The financing of these additional tests with support of the police must be considered in the calculations of the amount of the test fees required. It is recommended that it should be proofed that approximately 10 % of the vehicles tested every year are tested by roadside vehicles inspections per year to ensure that all vehicle owners carry out the tests.


36

5.2. Specification of a Tender Procedure and Preparation of Tender Documents

The tender procedure has to be divided into different time intervals and the specific work required as following:

1. Draft of a Regulation

2. Tender Procedure

3. Introduction of the roadworthiness procedure

4. Awareness campaign and public information system for roadworthiness

5. Continuing assistance for an effective introduction of the roadworthiness procedure (suggestions, voluntary)

While the distribution of all different time intervals is summarised in Paragraph 5.3, the following Table 7 starts with a first overview about the possibilities for a distribution of vehicle types and their intervals of tests (emissions and safety/reliability).


37

Table 7: Estimation of the Vehicle Number to be Tested in Roadworthiness Tests in (1995-1999) [5]

Type of Vehicle 1995 1996 1997 1998 1999 Estimated

Vehicles to Test1)

Test4) Frequency for I/M

Test4)

Frequency for

Safety Passenger Car

156486 165535 179212 178853 163472 174 000 n.a. n.a.

Bus 5180 3802 3901 3796 1794 1 800 12 month 12 month

Sedan 52217 54164 58907 59167 55921 55 000 24 month 24 month

Jeep 22931 24433 25397 24750 23868 25 000 24 month 24 month

Taxi2) n.a. n.a. n.a. n.a. 3547 3 500 12 month 12 month

Station-Wagon

69940 76275 84264 84365 73133 80 000 24 month 24 month

Microlet 62148 6861 6743 6775 8756 8 500 12 month 12 month

Light and Heavy Duty Vehicles3)

63158 69839 73571 73010 57689 67 000 12 month 12 month

Heavy Duty Vehicles5)

24856 27339 28924 29062 25868 27 000 12 month 12 month

Light Duty Vehicles6)

34035 38298 39964 39598 14636 17 000 12 month 12 month

Boxed Truck

1479 2205 2176 2210 11088 15 000 12 month 12 month

Boxed Small Truck

2788 1997 2507 2140 6097 8 000 12 month 12 month

Motor Bike and Scooter

539753 602942 670394 667207 648879 655 000 n.a. 24 month

Motor Bike

509565 573342 641199 638976 636632 640 000 n.a. 24 month

Scooter 30188 29600 29195 28229 12247 15 000 n.a. 24 month

All number of vehicles and motorbikes to be tested annual 81 000 12 month

All number of vehicles and motorbikes to be tested bi-annual 815 000 24 month

All number of vehicles to be tested annual excluding motor bikes and scooters 81 000 12 month

All number of vehicles to be tested bi-annual excluding motor bikes and scooters 160 000 24 month


38

All data sources: Surabaya Dalam Angka 1999 (Surabaya in Figures 1999), ISSN 0215.6202 1) The Estimation for vehicles to be tested is made on a very conservative basis (e.g. low economic growth, low increase of public transport as well as low increase of vehicle numbers) 2) Different source: DLLAJ of Surabaya City 3) Own calculations due to excluding tractor, fire cars, towing trucks, container, ambulance, etc. 4) Test frequency as recommended in Table 6 5) Named as “Truck” 6) Named as “Small Truck”

Table 7 shows that a safety test for motorbikes/-cycles should be obligatory as this category of motorised vehicles has a share of more than 70% and therefore a regular safety check will allow a significant reduction of accidents caused due to missing safety checks (e.g. brakes, steering, tyres).

The number of vehicles and/or motorbikes/-cycles to be tested annual depends highly on the boundary conditions, namely whether motorbikes/-cycles will be included in the roadworthiness tests and which economic development and increase of number of vehicles will take place in coming years. The following figures show different numbers of annual tests for vehicles, depending on the boundaries set (Figure 7). The estimations based on the given recommendations show that there is a need to test in the next years

• between 160,000 and 180,000 vehicles (incl. passengers cars, busses, etc.) and

• between 327,000 and 375,000 motorbikes/-cycles

every year in Surabaya. All these data depend highly on the data source [5].

Figure 7: Estimation of the Number of Vehicles and Motorbikes to be Tested in Roadworthiness Tests Depending on Different Boundary Conditions

The required technologies to test the vehicles and motorbikes/-cycles as summarised in Figure 2 are a given in Annex 1 (Section 10.1) and Annex 2 (Section 10.2).

The cost of the equipment varies highly according to the specifications. The price of the test equipment as described in the Annex 2 (Section 10.2), but excluding the cost for the car lifter will be between 22,000 US$ and 32,000 US$. These costs do not include the installation and construction. Further details must be part of the tender proposal given by interested

Estimation of the Vehicle Number for Roadworthiness Tests, Excluding Motorbikes

0

50000

100000

150000

200000

2001 2002 2003 2004 2005 2006 2007 2008

Total Number of Annual Tests w./o.Motorbikes (Base Case)

Total Number of Annual Tests w./o.Motorbikes (+2% p.a.)

Estimation of the Number of Motorbikes for Roadworthiness Tests

0

100000

200000

300000

400000

2001 2002 2003 2004 2005 2006 2007 2008

Total Number of Annual Tests ofMotorbikes (Base Case)

Total Number of Annual Tests ofMotorbikes (+2% p.a.)


39

parties. The City of Surabaya does not have to provide calculations in all details for the tender process. A first rough estimation without considering the facility cost shows, that a double lane test facility calculated for a period of five years could cost approximately 43,000 US$ per year (Table 8).

A test facility, working on five days a week and 8 hours per day (considering 255 working days per year) can start with testing 8,200 vehicles per year (calculating 30 minutes per vehicle) in the introduction period and 25,000 vehicles as a standard using a double lane test facility, calculating approximately 10 minutes per vehicle.

Therefore approximately 7 double lane test facilities are needed in the beginning to test the 160,000 to 180,000 vehicles in Surabaya every year.

The annual cost for each test of a vehicle will be between 5.25 US$ (30 minutes per test) and 1.75 US$ (10 minutes per test) if only costs for the staff and the test equipment (without test facility cost, profit, etc.) would be considered. It is not realistic to transfer these costs directly to the test fee that must be paid by the vehicle owner. But the calculation shows that the prediction interval for the profit, that is needed by the international investor and the local investor as well as an additional charge for the local government of Surabaya, is realistically attainable.

An annual charge, depending on the rough and incomplete calculations as given (2-5 US$ per test only under consideration of costs for staff and test devices) on the one hand and the illegal bribes already paid today twice a year (twice 7 to 9 US$) for buses and light and heavy duty vehicles - which result in 14 to 18 US$ per year – on the other hand, shows that it should be possible to charge 100,000 to 150,000 Rupiah per test (10 to 15 US$). A tender procedure should consider this amount to get a proposal from an interested contractor. A government charge of 30,0000 Rupiah per test could results in an income for public funding of approximately 500.000 US$ (5 Billion Rupiah) per year.

The costs for the staff consider a comparable high amount as a salary in comparison to average salaries in Indonesia in 2001. For comparison: A technician at a workshops earns 800,000 Rupiah per month which could rise up to nearly 1,500,000 Rupiah in some cases, which is between 80 and 150 US$.

The consideration of motorbikes/-cycles on a lower test charge has the potential to increase safety and income for public funding significantly as well as to reduce the number of accidents. Therefore the tender procedure should consider that particular type of motorised vehicle.

For the tender procedure and the identification of a contractor a technical tender draft as well as a formal tender draft including the description of the procedure as well as the contract for the technical services are necessary. In the attached Annex 3: Terms of Reference for a Tender Procedure for the Roadworthiness Testing of Motor Vehicles and Motorbikes in Surabaya, Indonesia and in Annex 4: Formal Tender Requirements and Draft of a Contract for the Engagement of a Technical Service summarize the necessary boundary conditions and requirements for the whole process.


40

Table 8: Basics of the Calculation for Cost Estimations of Roadworthiness Tests

Double Lane Test Facility

Number Cost per Month and Person (US$)

Annual Cost (US$)

Station Manager 1 200 2,400

Administrator 2 150 3,600

Technicians 6 100 7,200

General Personal Cost 2 70 1,680

Investment Cost for Equipment (50,000 US$ per Lane, 7% p.a.) 2 - 28,000

Annual Total Cost for Test Staff and Equipment, but without Facility, Construction, etc.

42,880

5.3. Specification of an Implementation Schedule

The specific time schedule proposed for the introduction strategy is summarized in Table 9. The time schedule shows that it will be possible to implement an effective roadworthiness procedure within 12-14 months.

One of the main tasks must be to ensure the independence of the main tender procedure itself and the tender board. Only this can make sure that international investors provide investments for the projects, it must be proved that any case of corruption is impossible. Therefore it makes sense that external knowledge is used for the draft of the regulation, an external expert selection group takes part in the independent and neutral selection procedure of the tender and an external expert audit group audits the roadworthiness test procedure in Surabaya after one, two and/or three years. This procedure should be financed by a second party (e.g. GTZ or Worldbank).

The tender procedure has to be open, reliable, as well as prepared, introduced and followed by an independent Tender Board, including an external audit of (international) experts with experience on roadworthiness. It shall be clearly stated that the City of Surabaya will withdraw the contract, if the system does not work appropriately and on a legal basis. Roadworthiness test procedure performed by the Contractor should be reviewed after one year and after two years by a neutral external audit group of (international) experts with experience on roadworthiness tests. Based on this experience, consequences, up to an immediate withdrawal of the contract, should be possible. Someone neutral should finance the cost of the test audit.

6 7 8 9 10 11 12 1 2 3 4 5 6 7 8 9 10 11 12 1 2 3 4 5 61.1. 1.1. 2.1. 3.2.2. 1.2. 2.2. 3.

2. 4.2. 5.2. 6.2. 7.2. 8.2. 9.2. 10.2. 11.3.3. 1.3. 2.3. 3.4.4. 1. First announcement of process4. 2.4. 3.4. 4. 5.5. 1. Local assistance for the process by GTZ (hinge between City Govt. & Int. Experts)5. 2. Translate Regulations, Annexes for Indonesian Drafts from Germany5. 3. Discussion of the legal drafts with the international consultant (if available)5. 4. Access to technical translator for City Road Traffic Office5. 5. Identify and hire legal experts with high skills for impelementation of regulations and laws 5. 6. Identify and invite international expert tender group for the audit of the process (2.11.)5. 7. Invite international expert group for auditing the process after 1 year, 2 years, ...5. 8. Transfer sucessful Roadworthiness Procedure to other Cities and/or National Level

Possible Continuing Assistance (e.g. by GTZ, Worldbank, Others)

Work for Legislation:

Rising Awareness

Definition and Draft of Formal Tender Requirements (incl. Draft of the Contract)

Formal Tender Draft (incl. Draft of the Contract)

First draft of Technical Tender + Formal Tender Requirements (incl. Draft of the Contract) from GTZ

Work for Tender:

Small awareness campaign (Swisscontact for emissions)Regular information about future requirements, benefits, costIntroduction campaign, legal requirements

Suggestion for the Introduction Strategy for Roadworthiness in Surabaya (DRAFT of 2001-05-25)

Month:

Draft of new regulation and annexes

Stop current draft regulation on roadworthiness being prepared by City Govt.

gg gyin Surabaya (DRAFT of 2001-05-25)

Year: 2001 2002 2003

Build up of equipment and stationsDay X: Start of Roadworthiness

Tender Working Group (City Road Traffic Office + legal experts)Legal Experts for Tender Process (formal procedure)

Introduction of Roadworthiness (I/M+Safety)

General cost estimatesIntroduce an OPEN and CLEAR tender process for biddersIntroduce an OPEN and CLEAR identification processs of best bidder

Identification of facilities

Roadworthiness "Informal Implementation Group"

Definition of requirements (discussions, lists, procedures)

Definition and Draft of Technical Tender Requirements

Technical Tender Draft

Table 9: Suggestion of a Timetable for the Implementation of Roadworthiness Tests


46

6 CONCLUSIONS AND RECOMMENDATIONS

Starting with a description of the main information available in Surabaya for the introduction of roadworthiness tests as well as the results of the discussion with the keyplayers in the process of the introduction of roadworthiness in Surabaya, this reports summarizes the main requirements for an introduction strategy for roadworthiness tests in Surabaya. The main results and recommendations can be summarized with the following ten reasons to change the current strategy of roadworthiness in Surabaya:

I. There is an urgent need not to proceed with the current draft regulation for the introduction of the regulation (City Regulation for Motor Vehicle Testing in Surabaya). Based on this draft the cost for the City of Surabaya for an introduction of roadworthiness can raise to more than half of a million US Dollar. This money can be saved and earned annually if an open tender procedure identifies a neutral organisation carrying out the tests on behalf of the government.

II. The only useful system of I/M procedures and additional safety checks (both summarised as roadworthiness test) is a centralised system with the responsibility on the hand of the government and the contractor of an official tender process. Therefore the introduction of a centralized system with a neutral organisation carrying out the tests on behalf of the government is a necessity. A decentralized system will fail all these requirements.

III. In addition a regulation dealing with punishments, fines and sanctions with a sound legal basis is urgently required, to attract bidders from overseas in a joint venture with a local contractor to implement a roadworthiness procedure. If companies in advance of the official introduction make high investments, they must be able to rely on the fact that vehicles are tested in roadworthiness on a regular basis and that it is not more attractive to pay a fine or get a manipulated certificate for a bribe.

IV. The Road Traffic Office of the City Government of Surabaya must have the main responsibility for the roadworthiness procedure and the therefore the required regulations. Even though if a neutral organisation carries out the tests on behalf of the, there must be the possibility of a legal basis to withdraw the contract in cases of fraudulence or corruption.

V. The combination of a charge to pay for the emission and safety certificate and sticker with the test fee for the standardised roadworthiness test guarantees City of Surabaya incomes for additional project funding. This income for the Government is only possible if roadworthiness is implemented in a centralised system with only one responsible contracting company.

VI. A government charge of 30,000 Rupiah per test could results in an income for public funding of approximately 500.000 US$ (5 Billion Rupiah) per year.

VII. If the strategy of introducing a simple "I/M module" and a simple "safety and reliability module" on a centralized basis, including all legal requirements and tender procedures is followed, it makes it simple to change any module in detail because the infrastructure is already set and easily to influence by government.

VIII. An attractive recommendation of the City of Surabaya is the possibility of the city to provide land for test facilities to a contractor at no cost to reduce the overhead allocation cost for the test facilities, which allows lower test fees for


47

the roadworthiness test. This idea should be followed for future strategies in the tender procedure.

IX. An annual test fee - under consideration of rough and incomplete calculations (2-5 US per test only under consideration of costs for staff and test devices) and under consideration of the bribes already paid twice a year (twice 7 to 9US) for buses and light/heavy duty vehicles - which result in 14 to 18 US$ per year – of 100,000 to 150,000 Rupiah per test (10 to 15 US) should be possible. A tender procedure should consider this amount to get a proposal from an interested contractor, who may have the possibility to offer a cheaper rate for the same service.

X. The introduction of safety tests for motorbikes/-cycles on a lower test charge has the potential to increase safety, reduce accidents and increase income for public funding significantly. Therefore the tender procedure should consider that particular type of motorised vehicle.

For Indonesia/Surabaya an initial I/M emission limit for CO at idle is sufficient for petrol vehicles without catalytic converters. The limit should be set at a value between 3.5 and 4.5 % v/v. For Diesel cars an initial I/M emission limit for Opacity at free acceleration is sufficient. The limit should be set at a value between 2.5 m-1 (naturally aspired diesel engines) and 3.0 m-1 (turbo-charged diesel engines).

For the tender procedure and the identification of a contractor a technical tender draft as well as a formal tender draft including the description of the procedure as well as the contract for the technical services are necessary. In the attached Annex 3: Terms of Reference for a Tender Procedure for the Roadworthiness Testing of Motor Vehicles and Motorbikes in Surabaya, Indonesia and in Annex 4: Formal Tender Requirements and Draft of a Contract for the Engagement of a Technical Service summarize the necessary boundary conditions and requirements for the whole procedure.


48

7 ABBREVIATIONS

7.1. Decimal multipliers and dividers µ micro 10

-6 M mega 10

6

m milli 10-3 G giga 10

9

k kilo 103 T tera 10

12

7.2. Units °C grade Celsius temperature [°C] = [K] – 273.15 K

d day time 86.4 x 103s

dB(A) decibel(A) noise -

F Fahrenheit temperature [F] = 9/5 * [°C] + 32

g gram weight 10-3

kg

h hour time 3.6 x103s

J joule energy kg*m2/s2

K Kelvin temperature K

l litre volume 10-3

m3

m metre distance -

mile mile distance 1609 m

s second time -

t tonne weight 103 kg

tce tonne coal equivalent energy 29.3076 GJ

W watt power kg*m2/s3

Wh watt-hour energy 3.6 x 103J

HP Horse Power power 735,499 W

7.3. General abbreviations CNG Compressed Natural Gas

GTZ Gesellschaft für Technische Zusammenarbeit

EU European Union

ICN Inspection Centre Network

I/M Inspection and Maintenance (part of a roadworthiness test)

n.a. Not available

NGO Non Governmental Organisation

ppm parts per million


49

R MTB Roadworthiness Main Tender Board

R I G Roadworthiness Introduction Group

SUTP Sustainable Urban Transportation

TWC three-way catalyst

w./o. without

% v/v percentage of volume

8 GLOSSARY

Inspection and Maintenance Description of a regular emission short test based on idle, high idle or loaded driving conditions, part of the roadworthiness test.

Roadworthiness Test Regular (e.g. biannual) check of a vehicle, consisting of a) emission test procedures (Inspection and Maintenance, I/M) and a Safety and Reliability Check.

Safety and Reliability Check Part of the roadworthiness test.


50

9 BIBLIOGRAPHY

[1] Motor Vehicle Emission Regulations And Fuel Specifications, Report No. 9/98 update, CONCAWE, The Oil Companies European Organisation For Environment, Health, Safety

[2] Terms of Reference for Consultant Services, Inspection and maintenance expert, Project: Sustainable Urban Transportation in Surabaya, East Java, Indonesia, Karl Fjellstrom, GTZ SUTP 2001

[3] Bosch System Proposal for Car Testing, Bosch GmbH Annex 1: Technical System Proposal for Car Testing as Defined by a Supplier and Annex 2: Technical Descriptions of Car Testing Devices as Defined by a Supplier

[4] The role of Private Workshops in Reducing exhaust-gas emission of motor vehicles, FX SOESENO, GABUNG INDUSTRI KENDARAAN BERMOTOR INDONESIA, Gaikindo, JI. HOS Cokroaminoto No. 6, Jarkata Pusat 10350, English version: Originally in Bahasa Indonesia

[5] Surabaya Dalam Angka 1999, Surabaya in Figures 1999, Tables 08.01.04, 08.01.6, ISSN 0215.6202

[6] White Paper, Preparation of the Associated Countries of Central and Eastern Europe for Integration into the Internal Market of the Union, Conditions Necessary to Operate the Legislation, European Commission, http://cadmos.carlbro.be/Library/WhitePaper/WhitePaper.html#general