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PERFORMANCE AUDIT REPORT ON THE MANAGEMENT OF TRAFFIC INSPECTIONS AND SPEED LIMITS
Vision
To be a centre of excellence in public sector auditing
Mission
To provide efficient audit services in order to enhance accountablity
and value for money in the collection and use public resources
Excellence
Integrity
Peoples Focus
Innovation
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PERFORMANCE AUDIT REPORT ON THE MANAGEMENT OF TRAFFIC INSPECTIONS AND SPEED LIMITS
Table of Contents
Table of Contents........................................................................................iii
List of Tables and Figures...........................................................................v
Preface.........................................................................................................vii
Terminology used in this report.................................................................ix
Map of Tanzania showing regions covered in this audit........................x
Acronyms and Abbreviations.....................................................................xi
Executive Summary...................................................................................xii
Chapter One..................................................................................................1
Introduction...................................................................................................1
1.1 Background....................................................................................1
1.2 Audit objective...............................................................................2
1.3 Audit scope, methods and limitation..........................................3
1.4 Assessment criteria......................................................................5
1.5 Structure of the audit report........................................................6
Chapter Two..................................................................................................7
2.1 Development of road crashes..........................................................7
2.2 Policy and regulation.........................................................................9
2.3 Main actors for management of traffic inspections.....................11
2.4 Main actors for management of speed limits...............................12
2.5 Steps and procedures in Traffic inspections and speed limits.12
Chapter Three..............................................................................................17
Traffic Inspections.......................................................................................17
3.1 Where are inspections carried out?........................................17
3.2 Are risk factors prioritized in Inspections?..............................18
3.3 Are sanctions applied properly?...............................................25
3.4 Do planning documents address the risk of road traffic
accidents?....................................................................................28
3.5 Are there guidelines for conducting risk based traffic
control?................................................................................33
3.6 Are resources allocated in relation to risk?............................37
3.7 Are staff properly trained and equipped?...............................42
3.8 Are inspections monitored and evaluated?............................46
3.9 Quality of the information..........................................................50
Chapter Four...............................................................................................52
Speed Limits................................................................................................52
4.1 Are the setting of speed limits based on risks?.....................52
4.2 How are road conditions monitored?......................................56
Chapter Five................................................................................................59
Conclusions.................................................................................................59
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List of Figures
Figure 2.1 Cumulative number of registered vehicles 8
during the year
Figure 2.2 Crashes per 100 vehicles 2005 - 2010 9
Figure 3.1 Inspection efforts of the Traffic Police 22
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Preface
The Public Audit Act No. 11 of 2008, Section 28 authorizes the
Controller and Auditor General to carry out Performance Audit (Value-
for-Money Audit) for the purposes of establishing the economy,
efficiency and effectiveness of any expenditure or use of resources
in the MDAs, LGAs and Public Authorities and Other Bodies which
involves enquiring, examining, investigating and reporting, as deemed
necessary under the circumstances.
In completion of the audit, the office subjected the report to the critical
review of the following experts namely; Prof. Theophil Rwebangira,
Prof. David Mfinanga, Dr. Estomihi Masaoe and SACP James Kombe
(Retired) who came up with useful inputs in improving the output of
this report.
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Ludovick S. L. Utouh
Controller and Auditor General
Dar es Salaam,
March 2012
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Accident / Crash
The audit office decided to use the term crash throughout the report,
as it reflects the terminology used by majority of the international
organizations such as WHO etc., It is synonymous, in this report, to
the word accident widely used in Tanzania.
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Executive Summary
Introduction
Road crashes are a serious societal and public health issue in Tanzania.
The situation is deteriorating. During the period between 2000 and
2008, the total number of road crashes increased by 42 percent (from
approximately 14,500 to 20,600). The number of injuries went up 27
percent and the number of people killed increased by 67 percent. This
is 30 to 40 times higher than in most Western European countries.
Apart from the loss of many lives, the impact of the road crashes on
the countrys economy is enormous.
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Main findings
The audit noted that the traffic inspections were not prioritized to
address major factors which contribute to road crashes. The priority
was given to factors such as mechanical factors with a 12% relative
risk for road crashes and other factors such as road license, absence
of triangle and fire extinguishers etc which contribute very little to road
crashes. Human factors contribute up to 74% of all road crashes that
occurred in Tanzania in year 2010. This is depicted in the following
table:
Human factors 74 17
Mechanical factors 12 14
Road conditions 14 4
Other factors 0 65
TOTAL 100 100
Source: Traffic Police Annual Report
The above table shows that the traffic inspections do not prioritise key
risk factors. There is no target set to allocate adequate time and staff,
enforcement tools (breath analyzer and laser speed guns) in order
to make inspections focus on human factors such as speeding and
drunken driving.
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The regions which have high risk (number of fatal crash/km) have
been allocated fewer traffic police officers compared to other regions
which have a relatively smaller risk for road crashes. Similarly, regions
with high number of crashes had only 1 to 2 breath analyzers and laser
speed guns.
The fourth parameter, the revenue collected based on fines from traffic
offences has been monitored adequately and regular reports are
submitted to the regional police offices from the district police offices.
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Conclusions
The Tanzania Police Force through the Traffic Police Department does
not have adequate plans for traffic inspections conducted in the country.
This weakness has led to non-prioritization of traffic inspections; failure
to address key risk factors (such as human factors) and the inspections
are focusing on factors (mechanical) which contribute relatively less
to road crashes.
It was also noted that the applied sanctions do not have the desired
deterrent effect. The allocation of resources (such as time, inspection
tools, money, vehicles and personnel) for traffic inspections were
not allocated based on risk for road crashes in different regions and
districts.
The Ministry of Works has not taken effort to alter the speed limit with
changing road conditions. The present speed limits were set in 1973.
Similarly, the present system for monitoring road conditions and road
crashes is weak. There is no coordinated data base which is essential
for the review of speed limits.
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Recommendations
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Chapter One
Introduction
1.1 Background
The Road Safety situation in Tanzania has been deteriorating. During the
period between 2000 and 2008, the number of road crashes increased
by 42 percent (from approximately 14,500 to 20,600) whereby; the
number of injuries had gone up by 27 percent and number of people
killed had increased 67 percent3. This is 30 to 40 times higher than in
most Western European countries.4 Apart from the loss of many lives,
the impact of the road crashes on the countrys economy is enormous.
Causes of road crashes can be inferred from the Traffic police statistics.
According to this information human factors caused 75 percent of the
road crashes in 2008. Human factors include sub-factors whereby
reckless or dangerous driving accounts for more than half (55%) of
the crashes caused by human factors.
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The audit covered the four years period starting from January, 2007
December, 2010. Data was collected from nine (9) of 21 regions
in Tanzania Mainland.6 Highways, Regional and District roads were
covered including passengers and goods vehicles. The selected
nine regions included five regions with high rates of crashes while
the remaining four regions had low rates of crashes. The selection
was made to ensure that the entire country is represented in terms
of geographical coverage. Another purpose of the selection was to
facilitate comparison of results from similar roads between various
regions (i.e. higher and lower recorded crashes for comparison and
balancing of the picture).
6 The examined regions are Coast, Morogoro, Dodoma, Arusha, Mtwara, Mbeya,
Tabora, Kagera and Kigoma.
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In many cases the required data for the examination in the audit was
missing, limited or questionable, and the audit office had difficulties with
crosschecking and confirmation of data provided during interviews. It
is however the assessment of the audit office that the examination of
nine Regions in this audit provides a relevant picture of the audit area
and therefore the conclusions from these regions can be applicable to
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The various methods used for collecting data are described in more
details in Appendix 2.
The assessment of the audit were based on the following two general
criteria:
The road traffic regulations and best practices for traffic inspection
state that, in order to successfully combat the problem of increasing
traffic accidents, the planning, resource allocation and implementation
of traffic inspections should be addressed towards risk areas for road
crashes and the major risk factors, human factors and conducted in
accordance with best practice. This in turn requires access to proper
and reliable statistics on road crashes/incidents. Data collected
should be recorded and analysed and used as a base for risk based
management of road safety. In addition, sanctions should be used
to combat the occurrence of road crashes in accordance with the
stipulated laws and regulations.
7 The Traffic Police Headquarters and road safety experts agreed that conclusions
from nine selected regions can be applicable to other regions not covered in this audit.
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The road safety policy states that, road authorities shall give highest
priority to actions aiming at reducing excess and inappropriate speed
problems and reducing the risk for vulnerable road users.
The road traffic regulations require the drivers to drive at the set
speed in order to ensure safety to all road users. According to the
best practices8, set speed limits should be properly planned based on
risk analysis. The situation should continuously be monitored in order
to adjust the speed limits according to the traffic and road conditions.
This requires that compliance is followed up by the Police Force and
reported on to the responsible authorities for speed limit signs.
Chapter 2 gives the account of the audit area with the Road Safety
Management system set up, procedures for drivers inspection,
monitoring, evaluation and budget allocation for Road Safety
Management related activities.
8 WHO Speed Management (a road safety manual for decision makers and
practitioners) and OECD Report on Speed Management
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Chapter Two
Road safety through traffic inspections and
speed limits
The aim of this chapter is to give the background to the traffic inspections
and speed management related activities. In this chapter a number of
issues have been covered including; the development of road crashes
and increase in vehicles, policies and regulations in road safety arena,
main actors for the management of traffic inspections, speed limits
and steps and procedures in Traffic inspections and setting of speed
limits.
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1200000
Comulative number of registered vehicles
1000000
800000
600000
400000
200000
0
2005 2006 2007 2008 2009 2010 2011
Year
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Figure 2.2 above shows that the number of crashes per 100 vehicles
increased between year 2005 and 2007. Starting year 2007 number
of crashes per 100 vehicles decreased.
According to the traffic police most of the fatal crashes tend to occur
on trunk roads and regional roads. One important factor behind this is
that the roads are single lane, tarmac and hence it is possible to drive
at high speed. Another explanatory factor is that trunk and regional
roads have a high traffic density.
Road Traffic Act of 1973 (Cap. 168 R.E. 2002) and its accompanying
traffic regulations is in force since 1973. Together with several
amendments made therein it remains the principal regulation for all
traffic matters in Tanzania.
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The Ministry of Home Affairs through the Tanzania Police Force during
their enforcement of traffic laws and their regulations is responsible
for:
o Giving priority to offences that most directly affect safety;
o Making a follow up of all road crashes that have
occurred;
o Carrying out investigation and prosecution of traffic
safety offences in courts; and
o Enforcing rigorously the traffic law.
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The department is also responsible for enforcing the Road Traffic Act
of 1973 regarding:
According to the Tanzania Police Force Annual Report for the year
2010, one of the objectives was to decrease traffic crashes and make
the streets safer through the following strategies:
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Types of inspections
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Prevention
Intelligence; and
Enforcement.
The Department of Traffic Police sets out its high level enforcement
objectives in its annual plan. The responsibility to develop strategies
and enforce road safety management lies with the Traffic Police
Department.
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The traffic police directs its enforcement activities against two broad
areas of non-compliance:
The Road Traffic Act of 1973 sets speed limit for private cars and
Heavy Goods Vehicles as follows:
There are few sections of roads that are subject to speed limits. They
include settlements, tight curves and other hazardous sections).
Although there are no speed limits for private cars other than for
sections mentioned above, the trunk roads are generally designed for
a speed of 110 km/hour according to the Manual.
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The Ministry use other key stakeholders such as the Tanzania Police
Force which is responsible for enforcing the set speed limit, while
TANROADS and PMORALG are responsible for ensuring that roads
are passable (mobility objective).
9 Global Plan for the Decade of Action for Road Safety 2011-2020
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Chapter Three
Traffic Inspections
In this chapter, we present our findings regarding the first audit question,
i.e. Is the Traffic Police managing the inspection service efficiently and
effectively?
According to the traffic police most of its inspections are carried out
on trunk roads. The reason behind this is that the risks for crashes
are higher on trunk roads due to:
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According to traffic police statistics for the period from 2000 to 2005,
human factor was the major cause of road crashes, causing more than
75 percent. The Human factor is made up of sub-factors where by
54% is reckless or dangerous driving.10 Reckless or dangerous driving
refers to inappropriate speed for a given road and traffic conditions.
Human factors11 include all factors which are caused by human errors
such as speeding, overtaking, drinking and driving, overloading or
poorly loaded and careless driving.
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Table 3.1 below shows the major causes of road crashes in Tanzania.
Mechanical factors 16 12
Road conditions 7 1412
TOTAL 100 100
Source: Police Form 212 for the period 20002005 and 2010
From the table above, it can be seen that most road crashes involving
vehicles were associated with drivers performance, such as careless
driving, dangerous driving and excessive speed. These are factors
which the Police can influence through their inspections.
Table 3.2 below shows how the traffic police in Tanzania have
concentrated their inspection efforts on different risk factors. Effort is
measured in terms of offences brought to charge for each category.
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During the interviews with drivers from nine different regions, it was
noted that those factors given emphasis are the ones that are easy
to prove and that they are the ones that are easy to extract bribes on,
even though they are not necessarily the most critical ones in causing
vehicle crashes.
In table 3.3 the figures from the previous two tables have been
combined. This enables a comparison between risk factors for car
crashes and how the Traffic Police prioritize their inspections.
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Table 3.3: Risk for road crash vs. priority in inspection for 2010
Causes of Road Relative risk Relative weight in
crashes for road crash inspections (%)
(%)
Human factors 74 17
Including, Careless driving14 57 4
Speeding 9 4
Overtaking 8 0
Drink and Drive15 0 1
Overloading16 n.a. 8
Mechanical factors 12 14
Road conditions 14 4
Other factors 0 6517
TOTAL 100 100
Source: Traffic Police Annual Report
As seen in appendix four, police force data do not capture all the
information properly due to lack of equipment such as speed radar,
alcohol tester and GPS Locator. These equipment are necessary for
enforcing speeding and alcohol drinking and even measuring and
recording the crash location.
The reviewed road safety data and the TPFs own data on accidents
show that:
The main risk factors contributing to vehicle road crashes
related to driver experience, performance and behaviour.
Mechanical faults were not major factors but, where they
did occur, they tended to relate to functioning of vehicle
lights, etc and rarely checked tyre and brake defects;
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Figure 3.1 and table 3.3 above show that the inspection efforts of the
Traffic Police are focusing on areas which contribute very little to the
road crashes. This is according to police records.
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The audit team took initiative to assess what the regional traffic police
focus on during the inspections.
According to the same table 3.4, a lot of attention has been given to
mechanical issues and SUMATRA related issues, but not to the same
extent as speed.
The table gives an indication that the police, in spite of giving a priority
on speeding, found a lot of other offences and did not like to prioritize
speeding.
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The inspection point is a spot which the traffic police use for conducting
their road side checks. The aim is to check whether the drivers comply
with the laid down traffic rules and regulations.
In doing so, the audit team mapped out the black spots and inspection
points and the analysis are shown on table 3.5.
18 Black spot is an areawhich has got above average road crashes. For this
audit the maximum number of crashes in a black spot is 90 road crashes and the
minimum is 7 crashes.
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Table 3.5 shows that in all regions audited, there is a large number
of areas with a high rate of road crashes without inspection points.
More than half of black spots are without inspection points. Kigoma
and Mtwara regions seem to have a much worse situation compared
to other regions.
The Police Force was of the opinion that it has few inspection points
simply because the Force has limited human resources.
The audit tried to establish whether the few inspection points that
are catered for are the highest priority black spots. According to the
interviews with Traffic Police Officers, the audit team learnt that the
police inspections are not focusing on the highest priority black spots;
the inspection points were picked because they are within easy reach.
Another reason was the suitability of the location in that it is possible
for many vehicles to be inspected.
3.3 Are sanctions applied properly?
The Road Traffic Act has set up and stated a system of sanctions for
enforcement of the traffic laws.
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The table 3.6 above shows that the Police Force has frequently applied
verbal warnings and fines against many defaulters who failed to meet
their obligations.
At the same time, the Force has not applied other sanctions like
revoking the driving license of the drivers, and prohibiting some drivers
from driving for a certain period of time.
As stated in Table 3.6, the Police frequently applied verbal warnings.
Though verbal warning is not provided for in the Act and regulations,
police force uses it frequently.
The reviews of different traffic police records showed that the Police
do not record verbal warnings issued to drivers.
Failure of the Police to file verbal warnings given to the drivers can
result into the difficulty of tracing the drivers who have been warned
before so that other punitive measures can be taken against them
when they commit the offence next time.
19 This has been applied several times though is not provided for in the Road Traffic
Act.
20 This estimation is according to the Police Force
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Table 3.7 shows the extent of repetitions of fines for similar traffic
offences which took place within a year (i.e. 2010). The result is
according to the interviews with 445 drivers from nine different regions
of Tanzania Mainland.
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However, for the repeated traffic offenders who were fined more than
once, they paid Tshs. 20,000/= for every offence no matter how many
times it was repeated.
The reviewed strategic plan and annual plans (2009 2011) of the
Police Force shows that order of traffic offences for consideration is
as follows:
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The identified key risk factors which are the major contributory factors
to most of the road crashes according to the TPF are:
Speeding22
Drunk and Drive;
Traffic signs violations; and
Pedestrian zebra crossing violations by drivers.
During the interviews with traffic police officers from nine visited regions
and traffic police headquarters, they commented that the prioritization
of the above identified risk factors was supposed to be reflected within
the:
present set target for addressing them,
allocation of staff and time to address those areas,
inspection tools is in place,
inspections on those areas is carried out,
a statement acknowledging the importance of those
areas.
The same interviews with the Traffic Police Officers shows that the
traffic inspection plans need to be locally based. Each region and
district needs to come up with or assess their own key risk factors and
use them as the basis for their inspections. The reviewed operational
and inspections plans were not developed following that path.
Table 3.8 shows the extent to which the Police Force has engaged
itself in trying to address the identified risk factors in their planning
documents.
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The specific interventions addressing the key risk factors (see table
3.8 above) were not taken by the Police Force. The Police Force took
the general intervention of these key risk factors on the same weight
similarly to other factors such as Mechanical defects and overloading.
See Appendix eight on assessment of traffic inspections.
The reasons for not prioritizing key risk factors in traffic inspection
plans as per the interview with senior traffic police officers were that
there is no guiding document in place which guides the officers on how
they can prioritize.
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The reviewed inspection plans of the nine (9) regional police offices
visited had varied qualities. None of the region had a plan containing
all the elements of a good operational or inspection plan (see table
3.9).
The following table 3.9 shows the quality of plans reviewed based on
the basic criteria used from best practices.
Table 3.9 above shows that the inspection plans reviewed from different
regional police offices and their districts do not have all the necessary
elements of a good inspection plan.
24 To reduce road crashes and injuries by 5%
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According to the interviews with senior traffic officers, the reason for
failure of inspection plans to meet the basic quality of planning was
that there is no standard document which guides the Traffic Police
Officers on the structure and contents of good inspection plans.
The traffic police officers identified the following reasons for the
deficiencies in planning the enforcement operations of the traffic
policing as:
According to sections 3.4.1 and 3.4.2 above the TPF do not identify
key risk factors in their operational and inspection plans and similarly,
the plans developed at Central and Regional levels lack a number of
elements.
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Table 3.10 shows some of the directives which were contradictory and
hard to implement.
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The four issued directives (see table 3.11 above) were issued between
2008 and 2009 addressing a range of issues such as speeding,
mechanical defects and roadblocks.
The same scenario is reflected on directive three and four which have
a one day span.
While table 3.11 shows that some similar directives were issued a
day apart, it is also important to note that they came from different
offices or officers, which shows poor coordination within the Police
Force.
The table below shows the analysis of the 15 directives issued between
2008 and 2010 to regional police offices on various areas.
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Only six out of 15 issued directives addresses the Human factors. This
does not correspond with the extent to which human factors contribute
towards road crashes in the country.
3.5.3 The Regional and District police dont comply with issued
directives
Regional Police Commanders are supposed to issue feedback on the
directives given by the Police Headquarters.
Most of the visited regional police offices did not provide well recorded
feedbacks to the Police Headquarters on the implementation of the
issued directives.
26 Mixed factors cover factors such as Human, Mechanical and Road Conditions.
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The interviews with senior traffic police officers indicated that, the
Police Force does not carry out thorough analysis of the impact of
those directives issued to the Regional Police Offices. The Force did
not compare the statistics or records of the crashes before the issuance
of the directives and the number of crashes after the implementation of
the directives to see if there are improvements or not.
The annual budgets for the Police Force for the years 2007/08 to
2009/10 indicated that there is no money set aside specifically for
Traffic Policing in different regions.
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According to the interviews with the Traffic Officers from nine visited
regions there is a weak direct relationship between the risk for road
crashes and the amount of money distributed to different regions.
Failure to have a well defined system for allocating money for traffic
policing may result into regions with relatively low risk of road crashes
to receive a large amount of fund for traffic policing than regions with
high risk of road crashes.
The table below shows the available major resources for the traffic
inspections in nine selected regions of Tanzania. The resources in
discussion are speed radar, alcohol tester and traffic police officers.
The length of road network and number of crashes per annum have
been included in table 3.13 since these are factors that are considered
during the allocation of resources for traffic inspections.
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Regions such as Mbeya and Mtwara which have high risk (number of
fatal crash/km) have been allocated smaller number of traffic police
compared to regions such as Dodoma and Kagera which have a
relatively small risk for road crash.
The table below shows the comparison of risk for road crashes to
number of policemen per crash.
Similarly, the audit team compared the number of crashes per length
of road network to number of traffic police officer for nine regions in
Tanzania with the intention of establishing how adequately the Tanzania
Police Force allocates police officers.
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Regions such as Mtwara and Tabora which have high risk (number
of crash/km) have been allocated smaller number of traffic police
compared to regions such as Dodoma and Kagera which have a
relatively small risk for road crash.
The TPF need to set money aside for the purchase of these enforcement
equipment.
The table 3.15 shows the amount of fines collected in nine regional
police offices which could be used for the purchase of the enforcement
equipment.
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Table 3.15: Amount of fines collected per region and the present
number of enforcement equipment (2009)
Region Amount of fines No. of No. of alcohol
collected Speed tasters (breath
(Million TShs.) radars analyzers)
Mbeya 483 3 1
Arusha 381 1 0
Coast 359 2 1
Morogoro 353 1 1
Kagera 313 0 1
Dodoma 257 1 0
Mtwara 139 0 0
Kigoma 133 1 1
Tabora 106 1 1
Source: Regional Traffic Police Offices (2011)
The table above shows that despite the fact that all nine regions had
collected more than one hundred million shillings each; still the number
of enforcement equipment is very small. Only one District out of six
Districts (an average number of districts for each region) has either
one breath analyzer or speed radar and is lacking GPS Locator.
The average market price for the speed radar is Shs. 3,900,000/=,
alcohol breath analyzer is Shs.3, 963,000/= and that of GPS Locator
is Shs. 450,000/=.
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The audit team carried out analysis of the average number of road
crashes or traffic police officer, average number of road crashes per
speed radar and per breath analyzers for each district visited during
the audit. The analysis was done based on three main resources
allocated to the district police offices. These resources are staff and
enforcement equipment (speed radar and breathe analyzers).
The analysis showed that most districts did not have a radar gun or
breath analyzer.
Professionalism and integrity are the core values of the road safety
management in Tanzania; this is according to the National Road Safety
Policy of 2009. For the traffic policing to be done in a professional
manner, it is important to ensure that Traffic police are well trained and
equipped to discharge their role.
According to the training and annual plans for the traffic police, the
following training courses should be provided to the Traffic Police
Officers who are responsible for traffic inspections, these are:
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Driver and rider training, including basic maintenance, and this should
be provided for all patrol officers. Similarly, traffic police training should
provide courses in public relations and management skills.
The officers selected to join the traffic police department receive only
basic training on traffic laws, highway patrolling and traffic management
and control. The basic training course according to them is not enough
to equip the traffic police with enough skills for adequate traffic policing.
They lack detailed training on how they can use different inspection
equipment such as speed radar, breathalyzers, GPS Locator for
locating scene of road crashes etc., public relations, management
skills and accident investigation.
Lack of training is at all levels and senior police officers are frequently
transferred into traffic policing without receiving any previous traffic
training.
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The above table shows that all nine visited regions in Tanzania are
lacking necessary enforcement equipment for addressing the problems
of alcohol and speeding.
On the other hand, all regions lack GPS Locator which is necessary for
locating the precise location of scene of crash.
The other challenge admitted by the Police Force during the interviews
is that some of the officials are not conversant enough in using the
available equipment. This resulted into disputes with some of the
drivers who questioned the authenticity and reliability of the reading
from such equipment.
27. It is defective
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This is ideal, but according to interviews with Traffic Police officials these
procedures are far from being followed. TPF has no documentation of
these inspections.
The reason for this according to Traffic Police officials is that such a
formal system is likely to require a lot of human resources and time.
No attempts have been made to test a more simplified documentation
system.
The quality assurance system includes two main issues. One issue
deals with planning, conducting and documenting traffic inspections
results. The other issue deals with whether TPFs own staff are abiding
to the established ways of planning, conducting and documenting
traffic inspections.
According to the interviews with Traffic Police officials, TPF has not
issued or required its staff to prepare and observe the above elements
of quantity and quality assurance. Also, during the site visit, the audit
team observed a number of weaknesses in the way Traffic inspections
were handled. Some of the factors which are contrary to the best
quality assurance are:
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The reasons given by TPF are that, it has no set strategies for ensuring
that quality assurance are in place. According to Traffic Police Officers,
the Force is not well equipped with modern vehicles and its staff are
not well aware of the planning issues. Supervision is slack. The result
of this is that TPF has failed to ensure that its staff follow the best
principles of Traffic inspections.
The Traffic Police collects high level data on the performance of its
enforcement activities. It does not currently have sufficient performance
data in a useable format to assess the effectiveness of specific individual
enforcement activities, such as the roadside checks/inspections.
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Therefore, this rendered the Traffic Police data not useful to other
stakeholders on road safety management in the country. For instance,
TANROADS who are responsible for hazardous road location treatment
do not rely much on traffic police records.
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Chapter Four
Speed Limits
This chapter mainly deals with the second audit question, i.e. Are
Speed Limits Risk based and Managed efficiently?
Speed limits act as a key source of information for road users. Set
correctly, they help reinforce drivers assessments of a safe speed and
act as a pointer to the nature of the road and related level of risk to
both drivers and other road users.
Speed limits are therefore an important part of the toolkit for achieving
appropriate vehicle speeds and wider road safety benefits.
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Other factors which are considered when setting speed limits and their
revision include: type of carriageway (single or dual carriageway),
super-elevation, straightness of the road, functional classification,
volume of traffic, vehicle weight etc.
In Tanzania there are three general speed limits stipulated by law:
according to Section 51 & 52 of the Road Traffic Act of 1973, the speed
limit for the vehicles with more than 3.5 tonnes is 80km/h. For Lorries
and buses the general speed limit on all road types, except on urban
roads, is 80 km/h.
In urban and built-up areas, the speed limit is usually 60km/h and
50km/h respectively.
In general, speed limits are coupled to function and road type.
According to the interviews with the officials of the Ministry of Works,
the Ministry has not set other speed limits.
Despite the fact that there are factors which are used to determine
speed limits of most of the roads constructed in Tanzania, the Ministry
is not using the analysis of traffic accidents to determine the operating
speed of roads.
The Ministry was expected to look at the speed which is safe and most
likeable by the majority30. Most of the countries are using 85th Percentile
speed whereby 85% are using it and forgo about the remaining 15%.
The Ministry has not tested what is the speed distribution of most of
roads in Tanzania.
Speed Limit Management in Urban Areas when Traffic is light
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The setting of speed limit during the design stage addressed only
Geometrical factors (design speed) and there is no set speed limit
(operating speed). The only effort taken by the government is to
construct speed humps and bumps in urban roads without carrying out
thorough analysis of road crashes (analysis of traffic accidents) which
have occurred on a particular road section.
This trend of constructing speed humps and bumps has been increasing
in most of the urban and highway roads following the increase of fatal
road crashes.
The interviews with different experts on Road Safety arena showed that
enforcement of speeding is better than the erection of speed humps.
On the issue of motorbike riders, there is no set speed limit for them.
The Engineer-in-Chief has not addressed this matter in urban areas
even though of late this is becoming a serious social problem.
There are few sections of roads that are subject to speed limits
(settlements, tight curves, other hazardous sections). This is according
to the Road Design Manual of the Ministry of works.
In all other places there is no speed limit that applies to private cars
although the roads are designed for a speed of up to 110km/hour.
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When the officials of the Ministry were asked about their strategy on
managing the HGV speed, they responded that there is no strategy in
place. Currently, they heavily rely on the Traffic Police enforcement.
According to the Road Traffic Act of 1973, Inter-city PSV speed limit is
set at 80km/hour this is according to the Road Traffic Act.
The government through the Tanzania Police Force has not effectively
enforced the above mentioned measures to ensure that PSV drivers
comply with the government directives.
The principle behind this is that higher speed limits are expected
on principal roads (trunk roads and other interurban roads) for long
distance travels than for distributor roads. Lower speed limits are
expected on residential streets or local access roads where the risk to
vulnerable road users is much higher and more frequent.
Table 4.1 shows the speed limits set in Tanzania for different types of
vehicles.
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The audit has noted that the Engineer-in-Chief has not reviewed the
set speed limit periodically as required. The reviews have not taken
place despite the fact that a number of accidents have occurred
throughout the country. This is according to the interviews with the
Ministry officials.
Based on studies of documents from police sources and interviews
with officials from the Ministry of Works, a number of black spots had
been noted where several crashes had occurred. Some of the noted
black spots which have not been acted upon by the Ministry (Engineer-
in-Chief) are shown on table 4.2:
Table 4.2: Black spots which have not been addressed by the
Ministry
Region Black spots which have not been addressed by the
Ministry
Morogoro Msimba, Kidahi, Iyovi, Mikumi National Park, Ibuti, Tabu Hotel,
Mtumbatu and Magengeni.
Dodoma St Gasper Hotel, Ihumwa and Msembeta.
Mbeya Mlowo, Ihanda, Wawa mjini, Maporomoko and Ilomba.
Tabora Bulyangombe, Ziba, Mgongolo and Udutu.
Arusha Kambi ya Mkaa, Radio Habari maalumu, Mbuga Nyeupe, Kisongo
and Silalei.
Mtwara TRA, Coco Beach, Mahenge, Msijute, Jida, Tokula Base, Mkuti,
Mtandi and Masasi Mbovu.
Kigoma Manyovu, Bangwe, Mwembetogwa, Gungu, Veta, Kibirizi, Kigoma
kati, Ujenzi, Mlole, Mayange, Kidiama, Kosovo, Busunzu and
Mshindu.
Sources: Road accidents reports Police (2011)
Through the road safety audit reports, the Ministry was not able to
come up with useful information on how best they should alter the
speed limit according to the changing road conditions.
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These measures are useful for the authorities to assess the success
of a speed management policy in using our roads.
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Chapter Five
Conclusions
5.1 Inadequate Planning of Traffic Inspections
The Police Force plans did not document key risk factors for road crashes
which have occured on our roads, such as speeding, drunkenness etc.
and did not prepare mitigating actions. This is despite the fact that
during the interviews with different Police Officers, they seemed to be
aware of major risk factors in their respective regions and districts.
Although Police Officers are aware of risk factors, their inspection plans
did not reflect that. The failure to prepare their traffic inspections based
on the major risk factors made their plans less effective and resulted
into sporadic inspections which were conducted just to address adhoc
events and leave the major risks unattended.
The inspection plans were not evaluated based on the major risk
factors and adjusted regularly over the course of the inspection period.
The Police Force did not explain how the day to-day work of traffic
inspectors would change as identification and documentation of major
risk factors were integrated with traditional planning activities.
The Police Force has failed to prioritize the key risk factors and for
that matter failed to come up with targeted inspections which are more
effective and addresses the major risk factors.
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This has led into the traffic inspections conducted so far, to be carried
out without having a clear focus and set objectives to be accomplished.
Police has been conducting a number of inspections which indeed
addresses a lot of issues at once and render the entire exercise not
productive and less effective.
Based on the chain of command within the Police Force, the Police
Headquarters tends to issue a number of directives to the Regional
Police and the same is cascaded down by the Regional Police to the
District Police.
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Most of these directives are ad hoc and when issued are sent to
all regions and later on to the districts for implementation. They are
issued without a thorough analysis of what are the major objectives
of the operation, how should that operation be executed in order to
gain maximum impact and how the key results should be reported and
evaluated.
Similarly, since the Police Force failed to provide clear objectives and
targets for the operations, during the executions the traffic police tend
to focus on less important risk factors.
Records have shown that, despite all the efforts of having these
unplanned operations during the year the number of road crashes kept
on increasing. This situation had at the same time left the Regional
and District Traffic police to be dependent on the directives from
Headquarters. Consequently, they fail to be proactive on planning their
traffic inspections based on the persisting local conditions.
During the audit, it was noted that the quality of the inspection plans
is inadequate. The reviewed inspection plans were found to lack a
number of necessary key elements of good plans.
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This is due to the fact that, it has been very difficult for the Police
Force to assess themselves in terms of whether the set objectives
of the inspections have been reached or not, and if they have not
been reached what are the underlining causes of failures and what
measures should be taken to address them.
It was expected that the traffic police interventions would address the
major causes of road crashes (key risk factors) i.e. human behavior
than other factors such as vehicle conditions and road environment.
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But when reviewing the data obtained from the same traffic police,
human factors seem not to be the major cause of road accidents
and as such it is not given the weight it deserves during traffic police
inspections. The reason why police data underestimate the human
factors is that they need to be backed up by the use of enforcement
equipment such as speed radars and breath analyzers. Such equipment
are not enough within the Police Force.
The traffic police lack formal guidelines for carrying out risk based
traffic inspections in the country. The traffic Police in different regions
are using a range of methods in carrying out their traffic inspections.
This has resulted into different traffic policing practices across the
country. Some of the practices differ from one part of the country to
another. The documentation of the traffic issues, planning of the traffic
inspections, measurement of the performance of traffic officers and
even conducting of those inspections are practiced differently.
Some regions have created their own risk indicator databases, some
document the decisions made in the risk analysis process in detail,
and others make decisions without documenting key details, such as
the rationale.
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The audit observed that the Traffic police tend to conduct their
inspections on areas where they are least needed or where there are
less frequent road crashes.
Failure of the Police Force to allocate the little resource they have in
their disposal has likely resulted into having an ineffective enforcement
of traffic laws; This may ultimately result into an increase in road
crashes all over the country. The fact that there were no personnel or
inspection tools where they were supposed to be at the required time,
rendered traffic inspections less effective.
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The audit team failed to establish the adequacy of this measure since
it emphasizes minor offences by putting pressure on Traffic Police
Officers going out to catch traffic offenders. That has prompted the
tendency of some of the officers to dwell much more on easily seen
offences such as mechanical defects etc. and underscore other critical
offences such as speeding, drunken driving etc. which are seriously
detrimental.
The system used for capturing and storing data for traffic offences is
a manual and stand alone which does not provide room for the Traffic
Police Officers to trace down a driver who has committed similar traffic
offences previously.
More than two thirds out of 445 drivers interviewed had committed
similar traffic offences more than three times in one year. These
drivers who committed similar traffic offences were given the same
punishment (fined) while they were supposed to have been given
more stringent punishment.
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This situation has been rendered so by the fact that the Traffic Police
do not have historical data of traffic offenders which can be retrieved
quickly by the Traffic Police Officer while looking for the historical
records of a driver who has committed a certain traffic offence. The
Traffic Police ought to look for the historical data of the traffic offender
before they can decide on what kind of punitive measure should be
taken. Once a Traffic Police Officer understands the historical records
of the traffic offender, he/she can very easily decide on the appropriate
punitive measure based on the strength of the offence and historical
records of the traffic offender.
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Reliable, accurate data can also help build stakeholders will to prioritize
road safety by:
documenting the nature and magnitude of the road traffic injury
problem;
demonstrating the effectiveness of interventions that prevent
crashes and injuries; and
providing information on reductions in socio-economic costs
that can be achieved through effective prevention.
The Police Force uses road side checks and inspections to identify
and deal with non-compliant drivers. The non compliant drivers are
caught and legal actions are imposed upon them.
The sanctions for offenders are divided into three main parts which;
are fines, prosecution or both.
During the audit it was revealed that most of the time the sanctions
applied to the traffic offenders were not very effective. This is evidenced
by the fact that the same drivers tend to repeat the same offences
knowing that the sanction to be applied were bound to be ineffective.
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It has been very difficult at the same time for the Police Force to change
the nature of the sanctions since they dont have a database of drivers
who have committed different traffic offences.
Failure of the Police Force to use the existing sanctions more effectively
led into the drivers to take the sanctions lightly and repeat committing
more and more traffic offences which contribute to more causalities.
When road conditions change, there is a need to alter the speed limit
to match with the improvements or deteriorations.
The method of altering the speed limit is very important in order to
ensure that road users are using roads in a safe way.
During the audit, the audit team tried to assess whether the speed
limits are altered if the road conditions have changed. The team failed
to get any evidence that the set speed limits in different roads have
been altered to suit the changed environment of the roads.
In certain areas, despite the fact that a number of road crashes have
occurred as a result of speeding, nothing has been done to ensure that
the speed limits are lowered and in that sense reduce the extent of the
problem as the Traffic Police would have been empowered to enforce
the newly set speed limit.
The only effort which is commonly taken is to install speed humps and
bumps which have proved to be ineffective in certain areas.
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road conditions.
The audit team learnt that there is no system in place at the moment
for monitoring road conditions and road crashes that occur on different
roads.
Failure to have the monitoring system has resulted into lack of analysis
of road crashes and the type of the road; and altering the speed limit
with the changing road conditions.
The consequence of this is that drivers and other road users are using
roads and driving at the set speed limits which put them in danger.
The Ministry do not request for the data from the police and do not set
the level of data quality necessary for them to use in their responsibility
of reviewing speed limits periodically.
Similarly, the Ministry does not maintain a data base for speeding
problems in the country and no visible effort has been done to introduce
a database.
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Chapter Six
Recommendations
The Tanzania Police Force has to ensure that it appropriately plans its
inspections.
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The Tanzania Police Force should, within the areas of its responsibility,
develop an action plan to identify and address the major risks to road
safety posed by drivers.
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4. The traffic control check points are located on areas which are
expected to have the highest impact in terms of reducing the
number of road crashes.
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3. Put in place its national risk indicator program for the enforcement
of Road Safety laws as soon as possible, in order to have a
standardized method to assess risk for the allocation of scarce
resources. The Police Force should document all decisions
made in the risk analysis process.
The Ministry of Works should ensure that speed limits in different roads
are properly set.
2. Set speed limits that are credible in relation to the road type and
its environment; and
The Ministry of Works should ensure that speed limits in different roads
are managed properly.
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References
1. The Auditor General of New Zealand [New Zealand]. 2002.
Bringing down the Road Toll: The Speed Camera program. The
Report of the Auditor General of New Zealand. Wellington, New
Zealand.
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Appendices
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This report provides the results obtained from the following two audit
questions:
Audit Question 1: Is the management of the inspection service risk
based and efficiently and effectively conducted?
Sub Questions
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Audit Question 2: Are the speed limits risked based and managed
efficiently?
Sub Questions
Sub-question 2.1: Are speed limits based on analysis of traffic
accidents and the type of road?
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1. Regional Visits
3. Consultation
Consultation with Road To establish their perceptions about the
safety experts in Tanzania, efficiency and effectiveness of the traffic
including University of Dar es police enforcement activity and to identify
Salaam lecturers and retired the scope for improvements.
senior government officials
who worked with, or have an
interest in traffic inspections
by the Police.
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6. Document review
Review of documents from To assess the administrative and
the Traffic Police, other bodies strategic context of enforcement.
such as the Department of
Road Safety from the Ministry
of Works and SUMATRA and
research reports, papers and
articles.
7. Questionnaire
Questionnaires were To establish their perceptions about
administered to 445 drivers the efficiency and effectiveness of the
from nine different regions. traffic police enforcement activity and to
identify scope for improvements.
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The information used in this table were extracted from Traffic Police
Annual Reports, National Road Safety Policy of 2009 and study
conducted by the University of Dar es salaam (BICO) for the period
2000 to 2005 and 2010
The information used in this table was extracted from Police Form 212
for the period of 2000 to 2005 and 2010
The information used in this table was extracted from Traffic Police
Annual Reports, National Road Safety Policy of 2009 and study
conducted by the University of Dar es salaam (BICO) for the period of
2000 to 2005 and 2010.
Formulas used for development of this table are the same as the ones
used in Tables 3.1 and 3.2.
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The information used in this table was obtained from Annual Traffic
Reports and Regional Traffic Accidents Report for different regions in
Tanzania.
The information used in this table was obtained from different sources.
These sources were interviews with regional traffic police officers from
all nine regions visited, views of the top management of Traffic Police
Head Office, Traffic Police Annual Reports, review of notification forms
etc.
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The information used in this table was obtained through the interviews
conducted by 445 drivers from the nine different regions. In each region
visited, the audit team was able to interview a number of drivers and
got their views on a number of issues.
They were also asked to rate the extent of repetitions of fines for similar
offences and categorize them into three groups i.e. once, 2 3 times
and more than three times.
Percentage was then obtained for each grouping and then tabulated
as shown in table 3.7.
The information was obtained from the current plans within the Police
Force (Traffic Police Inspection Plans (2009 and 2010)). The audit team
then assessed the extent to which targets were set, timely allocation
of staff, presence of inspection tools which could be used to enforce
speed and alcohol drinking. These were the four criteria necessary for
prioritization of key risk factors.
Rankings were then done by stating whether the factor was met or not
met at all.
The information was obtained from present plans within the Police
Force (Traffic Police Inspection Plans (2009 and 2010)). The audit
team assessed the extent to which objective, targets and performance
indicators were set, activities were planned, methods of execution were
defined, time was set and finally if there were means of conducting,
monitoring and evaluating. These were the seven criteria necessary
for a good inspection plan.
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Rankings were then done by stating whether the factor was met or not
met at all.
11. Table 3.11: Directives issued within a very short span of time
addressing the same or a different issue
13. Table 3.13: The Length of Road network per fatal crash in
relation to number of Traffic police officers (2010)
The information used in this table was obtained from Annual Traffic
Reports, Regional Traffic Accidents Report and statistics from
TANROADS on the length of road network for different regions in
Tanzania.
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The information used in this table was obtained from Annual Traffic
Reports, Regional Traffic Accidents Report and statistics from
TANROADS on the length of road network for different regions in
Tanzania.
15. Table 3.15: The Amount of fines collected per region and the
present number of enforcement equipment(2009)
The information used in this table was obtained from Annual Traffic
Reports, Regional Traffic Reports and statistics obtained from
Notification Forms for different regions in Tanzania.
The amount of fines collected annually from each region were then
verified and checked against the figure submitted to Traffic Police HQ
through the Annual Traffic Report.
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Other
factors Drivers licenses
offences 9,820 6.1 6
Vehicles Tax
offences 7,245 4.5 5
Transport
licenses
offences 11,726 7.82 8
Motor Vehicles
insurance
offences 9,825 6.1 6
Failure to
stop or report
accident(s) 5,374 3.3 3
Other Motoring
Offences 22,249 13.8 14
Private Taxi
Cabs offences33 4,014 2.4 2
Taxi Cabs
Offences34 4,863 3 3
Omnibuses
offences35 28,289 17.55 18
Sub total 4
103,405 64.57 65
Grand Total
160, 876 100 100
33 These are offences of vehicles which operate as taxis while are not really
registered to do that business
34 These are offences concern registered taxis which are having problems such as
expired business license etc.
35 These are offences concern registered passenger vehicles and relate to either
failure to comply with SUMATRA Timetable, etc.
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The questionnaires were also used to obtain the views of the drivers
with regard to the problem of corruption/bribing during the traffic
inspections.
The survey shows that 85.6% (381 respondents) responded that they
have been stopped more than three (3) times. The remaining 14.2%
(63 respondents) were only stopped less than three times (i.e. one or
two times).
According to the survey, the traffic inspections focused mainly on
Licenses inspection (22.9%), vehicle inspections (35.5%), overloading36
(13.6%) and both License and vehicle inspection (14.3%). In total the
top four offences comprise about 86.3% of all offences.
36 Overloading in this case means road tonnage limits on roads in urban
areas and excessive number of passengers in the PSV
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The remaining 13.7% were based on other risk factors such as speed
(2.5%), Alcoholism (2.0%) and Negligence/Careless driving (0.9%).
Bribing the police officers and the reasons for paying bribe
The survey revealed that, 12.6% (56 respondents) have never bribed
the traffic police even though they were caught with a number of
offences. 24.9% (111 respondents) have bribed the traffic police once
or twice and 62.5% (278 respondents) have bribed the traffic police
more than three times in order to buy themselves out of trouble.
The remaining reasons account for less than 26.6%. These are such
as over-speeding (5.3%), Alcoholism (1.6%), etc.
The survey also revealed that the amount paid for bribe ranged from
Tanzanian shillings 3,000 50,000/= depending on the nature and
type of the offence. According to the respondents, 31.0% had paid
bribe less than TShs. 5,000/=, 40% had paid bribe ranging between
Tanzanian shillings 5,000 10,000/= and the remaining 29.0% paid
more than Tanzanian shillings 10,000/=.
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Below is the result of the assessment carried by the audit team to check
whether the traffic inspections conducted by the Tanzania Police Force
are risk based oriented or not.
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38 World Health Organization (WHO). 2010. Data systems: A road safety manual
for decision-makers and practitioners and Global Road Safety Partnership. 2008. Speed
management: a road safety manual for decision-makers and practitioners. Geneva,
Switzerland.
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(1) Any person who uses parks or stands a motor vehicle or trailer
on any road carelessly or without reasonable consideration for
other persons using the road shall be guilty of an offence.
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