belarus: enhancing border-crossing time release studies to

In Partnership With

Belarus: Enhancing Border-Crossing Time Release Studies to Support Trade Facilitation ReformsBy Gagik Gabrielyan, Clayton Kerswell, Irina Shemshenya, Aliaksandr Abrashkevich

ECA Field Notes for Practitioners

May 2017

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3

May 2017

Acknowledgments

The World Bank Group’s Business Regulation and National Quality Infrastructure Project in Belarus wishes to

thank the Swedish International Development Cooperation Agency (SIDA) and the United States Agency for

International Development (USAID), for their generous support in funding the Project’s activities.

The authors would like to also thank and acknowledge Lisa Kaestner, Practice Manager, Trade &

Competitiveness Global Practice in Europe and Central Asia; Irina Niederberger, Senior Private Sector

Specialist; Victoria Tetyora, Private Sector Specialist, Violane Konar-Leacy, Private Sector Specialist, Trade &

Competitiveness Global Practice in Europe and Central Asia, for their valuable comments and peer review

of this document.

4


Border-crossing time release studies are powerful tools for analyzing trade logistics and

measuring the performance of border agencies. Insights from a border-crossing study

can help in designing and accelerating trade facilitation reforms. Preparing and car-

rying out an eff ective study is a challenging exercise in itself, as it involves sensitive

data, and complex multi-agency and cross-country relationships. The border-crossing

time release study for commercial cargo undertaken by the World Bank Group’s Trade

& Competitiveness Global Practice team in Belarus in 2015 is an example that provides

important lessons that may be useful for other countries.

Belarus is a member of Eurasian Economic Union (EEU), bordering three EU countries (Poland,

Lithuania and Latvia), Ukraine and Russia. As such, the country is strategically located for in-

ternational transit trade. With the aim of boosting the country’s transit role, the Government

of Belarus is undertaking several infrastructure development projects and regulatory reforms

aimed at trade facilitation. In parallel with physical infrastructure (“hardware”) development, it

is important to address “soft” aspects of trade, such as regulations and trade procedures. Thus,

the Government undertook a “two agencies at the border” reform with the goal of reducing

the number of agencies at the border to only two, namely Customs and the Border Police.

Belarus’s eff orts were supported by the World Bank Group (WBG), including the World Bank’s

Transit Corridor Improvement Project (TCIP), which is fi nancing the modernization of the transit

Corridor-M6 Minsk-Grodno, and the Belarus Business Regulation and National Quality Infra-

structure Advisory Project of the International Finance Corporation (IFC) with the aim of im-

proving trade procedures. In this context, the border crossing time release study (BCTR study)

was designed by these two WBG project teams, and implemented in close cooperation with

the State Customs Committee of Belarus. The data collection was undertaken by the Belarus

State University contracted by the IFC advisory project. The BCTR study was to serve as: (i) a

baseline for performance measurement of border agencies in trade facilitation; and (ii) a tool

for identifying bottlenecks in the border-clearance process and designing possible regulatory,

operational, and physical infrastructure improvements to address them. The study took place at

three border-crossing points (BCPs):

Berestovitsa – Bobrowniki (Belarus-Poland)

Bruzgi – Kuznitsa Belostotskaya (Belarus-Poland)

Privalka – Raigardas (Belarus-Lithuania)

5

May 2017

Designing a tailor-made border-crossing time release study

The BCTR study measurement method applied in Belarus was a customized, hybrid method

combining elements of various international methodologies, such as the Time Release Study

of the World Customs Organization (WCO), and driver-based surveys, with some modifi cations

and additional elements.

Driver-based surveys

In these surveys, truck drivers are given a questionnaire to be completed as their trucks/cargos

undergo border controls and cross the border. The survey makes use of a numbered question-

naire (data sheet) for every truck, with boxes to be ticked by border authorities and/or drivers for

every control measure. Data sheets are given to drivers at the entrance point (when trucks join

the queue at the exit country border-crossing point [BCP]) and collected at the exit point (when

trucks depart from the entry country BCP). This method has already been used in various forms

in (and by) many countries and organizations, for instance:

The Laufzettel exercise, originally used in the Baltic states (Estonia, Lithuania and Latvia).

Laufzettel means “routing slip or circulation sheet”. This method has subsequently been used

in other countries (Norway, Germany, Poland, Sweden, Greece, and FYR Macedonia).1

Time-cost study, applied in East Asian countries by the United Nations Economic and Social

Commission for Asia and the Pacifi c (UNESCAP).

Truck-by-truck survey, applied in a number of countries by the WBG, e. g., India and Pakistan.

WCO Time Release Study (TRS)

A Time Release Study (TRS) is a well-known and internationally applied study method devel-

oped and endorsed by the WCO for, “… measuring the actual performance of Customs activities

as they directly relate to trade facilitation at the border…”.2

The TRS collects data from Customs’ computerized systems and through questionnaires. Ques-

tionnaires move with the drivers and are completed by the drivers/border agencies, as with the

driver-based surveys. Compared with driver-based surveys, a TRS is more sophisticated and

detailed, requiring more formal involvement of the Customs authorities. While the TRS covers

control by all border agencies, it mostly focuses on Customs control. It does not normally in-

clude details of other border agency control operations (sanitary and phytosanitary [SPS], trans-

port, conformity assessment).

Studies via Cross-country Electronic Systems of Data Exchange

Examples of such systems are: (1) the SEED3 system, an intra-regional system linking Customs

authorities in the Central European Free Trade Agreements (CEFTA); and (2) NCTS4, a Europe-

an-wide system, based on electronic declarations and processing, to provide paperless and

better management, and control of transit across Europe. It involves all EU Member States and

the EFTA. These systems can be used to study, monitor, and compare border-crossing times.

However, they usually focus on Customs procedures and provide only general information

about border-crossing times, limiting their usefulness in the deeper analysis of border-crossing

processes.

1References to Laufzettel can be found in various EU documents, e.g. “Guidelines for Integrated Border Management in the Western Balkans”, http://ec.europa.eu/enlargement/pdf/fi nancial_assistance/cards/publications/ibm_guidelines_en.pdf

2For TRS methodology, see “Guide to Measure the Time required for the Release of Goods - Version 2”, WCO, 2011.

3Systematic Electronic Exchange of Data, http://www.eu-seed.net/pages/SEEDMaintenance.aspx

4New Computerized Transit System, http://ec.europa.eu/taxation_customs/resources/documents/annex_i_transit_brochure_en.pdf

6


Belarus BCTR s tudy

In addition to drivers and border authorities, the Belarus BCTR study included independent

observers at the BCPs, and made use of data from Customs’ computerized system and from

questionnaires (based on truck plate numbers). The important features of the Belarus BCTR

study were:

Inclusion of independent observers for data collection.

The design of the data sheets, including the structure and content (in addition to the drivers’

data sheet, it included observers’ data sheets for key locations and actions).

Greater emphasis and detail on other operations in addition to Customs control procedures.

Coverage of the border-crossing zone from both countries’ sides.

This combination of participants, data-sheet design, and data

sources enable important cross-checks of time stamps to be

studied, as well as ensuring comprehensive and detailed cover-

age of border-crossing processes and steps.

Independent observers were located at pre-agreed positions

in the BCPs (see Annex 1 and the table below) and recorded the

time of trucks passing through the stages of clearance (on Belarus, Polish, and Lithuanian sides).

In general, the number and positioning of observers at a BCP vary depending on the objectives

of the study, and the organization and sequence of clearance procedures, as well as the physi-

cal layout of the BCP. In the Belarus study, seven observers were involved in the data collection

on the outbound fl ow, and eight observers on the inbound fl ow. Of these observers, two were

positioned in the territory of Poland/Lithuania to collect data on the time of entry and departure

from the adjacent BCP. Overall, 19 observers were involved in studies at three BCPs. The num-

ber of observers was higher on the Belarus side, given that the study aimed be conduct a more

detailed analysis of the process on the Belarus side.

An important feature of the Belarus BCTR study was the sim-

plifi cation and splitting of the data sheet into several smaller

data sheets, based on the characteristics of the border-cross-

ing process, the physical layout of the BCP, and the movement

of trucks in the BCP zone. Subsequently, all data from the data

sheets were incorporated into a single matrix. (See Annex 1 for

the fl owchart and time stamps of the border crossing process,

and Annex 2 for data sheets.) The table below shows the data

collection sheets used for the inbound traffi c. These simplifi ed data sheets and the positioning of

independent observers provided several advantages to the Belarus study, in particular:

Data collection was easier from a practical viewpoint. Shorter data sheets were easier to

complete and manage, while observers could avoid moving back and forth with data sheets

and instead could focus on specifi c operations at their position. Also, drivers no longer had

any data to record.

The probability of mistakes and bias in the data-collection process was reduced. Using one

long and complicated data sheet circulating with a driver involves a greater risk of mistakes,

and bias by the driver and border authorities in recording the actions and time. Drivers often

confuse various types of inspections, do not make distinctions between types of physical

examinations, and/or do not indicate time accurately. Splitting the data sheets meant that

driver involvement could be minimized (or actually eliminated in the Belarus case).

The participation of independent observers was a critical element in ensuring the comprehensiveness, accuracy and objectivity of the measurements.

Splitting and customizing data-collection sheets helped to simplify the data-collection process, reduce mistakes and bias, and capture more critical details about border agency control actions.

7

May 2017

It allowed the more eff ective incorporation of detailed information on actions by all border

agencies and the waiting times for those actions, especially the types and intensity of docu-

mentary and physical examinations. This was important in the Belarus case, bearing in mind

the Government’s goal of implementing a “two agencies at the border” system.

The use of separate data sheets at each observation position and the participation of inde-

pendent observers increased the objectivity of measurements. This was critical for ensuring

eff ective cross-checks and the verifi cation of the data on the actions and time in the bor-

der-crossing process.

Greater objectivity was also important to improve the credibility of the results from the per-

spective of stakeholders, including those from the private and public sectors, NGOs, and in-

ternational organizations. This, in turn, was important in facilitating the promotion of reforms

that were identifi ed based on the results of the Belarus BCTR study.

Compared with other BCTR study methods, the Belarus BCTR study had a higher focus on,

and coverage of, the details involved in control procedures, including physical examinations by

Customs, Transport, and SPS agencies (veterinary, phytosanitary, and health).

While other methods capture only general information about non-Customs control (i. e., usually

there is only one question on whether an SPS inspection was carried out or not), the Belarus

BCTR study captured details such as the types of physical examination, the sampling proce-

dures, the duration of physical examinations, and the time between the arrival of a truck at the

examination zone and the start of the actual examination. This high level of detail provided a

clearer picture of the border-crossing process and the roles of each of the border agencies.

It also helped to identify bottlenecks in the process with greater precision, while establishing

causal links between delays and actions with greater accuracy. This is important in enabling the

eff ective design and implementation of reforms to improve BCP processes.

Data sheet Data coverage Carried and completed by

Data sheet #0General information: truck number, consignment number, product characteristics, point of destination, time of weighing, and types and times of controls by border agencies.

Driver, and completed by border au-thorities. It moved with the driver.

Dada sheet #1Waiting time in the queue and the time of entering the exit coun-try (Polish) BCP.

Observer #1, located at the entry into the Polish BCP.

Data sheet #2 Time of departure from the exit country’s (Polish) BCP.Observer #2, located at the exit from the Polish BCP.

Data sheet #3 Time of entry into the entry country’s (Belarus) BCP.Observer #3, located at the entry point into the Belarus BCP.

Data sheet #4

Start and end times of controls, as well as the intensity of exam-inations of the preliminary Customs control and Transportation control (e. g., the control actions taken by the offi cer, e. g., external visual and/or physical examination of the cabin and the truck).

Observer #4 and #5, located at the zone for preliminary customs control and transport control.

Data sheet #5 Time of recording in Customs electronic queuing system.Observer #6, located in Customs clearance offi ce.

Data sheet #6

Start and end times of controls, and types of examinations by Cus-toms and non-Customs (veterinary, phytosanitary, sanitary/health) of cargo, e. g., external visual, tailgate, scanning, detailed physical examination, sampling).

Observer #7, located at the platform for physical examinations.

Data sheet #7 Time of departure from parking lot towards the exit gate.Observer #7, located at the platform for physical examinations, and parking lot.

8


As seen in many countries, physical examination by Customs, and especially by non-Customs

agencies, is a major source of delays in the cargo-clearance and release process. Therefore, it

is important to understand the exact stages and/or actions in the physical examination process

that cause the delays. For instance, some delays may be caused not by the physical examination

itself, but by delays in decision-making and/or in starting the examination after decisions have

been made. In Belarus, the waiting time for starting physical examinations was often signifi cant-

ly longer than the examination itself, indicating a problem with process design. In many Western

Balkan countries, as indicated by the IFC Western Balkans Trade Logistics Project, a major source

of delays is the high frequency of laboratory testing and related burdensome procedures (but

not tailgate or intensive/intrusive examinations) in SPS controls.

To capture and record the details, the Belarus BCTR study team ensured that the questionnaires

were properly completed, and that there was a clear description of types of physical examina-

tion, and a clear understanding of them by the observers. Importantly, the descriptions were in

accordance with legal defi nitions and terms used in Belarus. The physical examinations defi ned

included the following:

External physical examination: visual inspection, without opening the truck;

Tailgate examination: opening the truck, verifi cation of identity of cargo/consignment, with-

out moving, unloading and loading the goods;

Detailed (non-intrusive) examination: X-ray scanning of the truck/cargo;

Detailed (intrusive) examination: physical examination, which involves opening the truck,

moving and/or unloading and loading the goods, opening packages of goods; and

Detailed (intrusive) examination with sampling: as above, but with samples taken from cargo

and sent for laboratory testing.

The level of detail to be achieved depends on the policy or re-

form agenda, and the objectives of a country, and the resources

available. The greater the detail, the greater the collection and

analytical eff ort and, usually, the greater the resource require-

ments.

In Belarus, the detailed analysis of all procedures was particu-

larly important due to the ongoing “two agencies at the border”

reform and the intention of introducing a simplifi ed clearance

system called an “in-channel” system. The former was aimed at reducing the number of agen-

cies at the border to only two, namely Customs and the Border Police, where Customs are re-

sponsible for, in addition to Customs controls, all the trade-related technical controls (transport,

health, veterinary, and phytosanitary), while the Border Police are responsible for security. The

additional workload for Customs created challenges and impacted its operations, staffi ng, and

organizational structure. To meet these challenges, there was a need to enhance Customs con-

trol performance in some areas, such as data and information

collection and exchange between border agencies, Customs

risk management and inter-agency coordination of risk-man-

agement, and knowledge about the specifi cs of technical con-

trols.

A border is not a one-side, but a two-side, zone. The Belarus BCTR study included observa-

tions and data collection on both sides of the border at each of the three BCPs5. This provided

important insights through comparison and cross-checking of fi ndings, for instance, trade and

transportation/logistics patterns.

5 The inbound traffi c in Privalka BCP was very

small. Therefore, this paper focuses mostly on the

other two BCPs.

Greater detail on non-Customs control operations provided a clearer picture of the border-crossing process and the roles of each border agency in it, identifying bottlenecks with greater precision and with more accurate causal links.

Inclusion of three BCPs and two sides of the border provided important insights.

9

May 2017

Implementing the study – selected insights and lessons

Following a 3-month-long preparatory process, the fi eld implementation of the Belarus BCTR

study took place from April 14 to May 24, 2015. Over this period, all trucks crossing the three

BCPs on Tuesdays, Saturdays and Sundays from 9 am to 6pm were surveyed6.

Involvement of stakeholders from the very beginning is crucial

One of the crucial success factors in conducting such a complex and sensitive study was the

Belarus WBG team’s successful engagement with Customs and the eff ective coordination with

the other border agencies. This coordination applied from the Belarus BCTR study design stage

through to its completion and the analysis of the fi ndings.

First, the involvement and participation of all the relevant agencies is necessary to obtain all the

necessary formal agreements and permissions for conducting research activities, entering and

moving around the BCPs, and obtaining data from offi cial systems. Second, close coordination

is vital for reaching a common understanding among border agencies, and adequately address-

ing inter-agency competition or confl icts/disagreements. Third, close coordination allows im-

portant practical advice from border agencies to be shared, necessary for the eff ective design of

the Belarus BCTR study, including the choice of days for high, low and average traffi c intensity,

the position of observers, and important nuances in the procedures. Finally, eff ective coordina-

tion is crucial for the later acceptance and promotion of fi ndings of a study by the stakeholders,

and the subsequent design of reforms to address issues identifi ed by the study.

Coordination with bordering countries may be time-consuming and resource-demanding

An eff ective BCTR study should include both sides of the border zone. Thus, it is crucial to have

close coordination and cooperation with border and other relevant authorities of the neighbor-

ing country. In the Belarus case, all activities were agreed and coordinated with relevant Cus-

toms and Border Police services in Poland and Lithuania. Such formal communications, meet-

ings and other arrangements, were time-consuming and resource-demanding, and required

diplomatic involvement. The embassies of Poland and Lithuania in Belarus were informed of the

Belarus BCTR study and, as a result, attention was given to such issues as:

Obtaining formal agreements for carrying out the survey;

Agreeing the time for the fi eld survey, and the position of observers;

Making visa arrangements for the observers; and

Informing border agencies and businesses about the survey.

6At Bruzgi, 396 incoming and 308 outgoing, and at Berestovitsa, 512 incoming and 314 outgoing trucks, were surveyed.

10


Preparatory site visits are necessary

A critical part of the implementation was to make preparatory site visits to the BCPs in order to

walk through the whole process with Customs and other offi cials, and truck drivers. This was

instrumental for:

the eff ective design of the study methodology;

the identifi cation of the number and the position of observers;

the design of data sheets (structure and contents); and

understanding key nuances in the landscape and layout of the BCPs that could aff ect the

process.

Measuring queueing time can be challenging and resource-demanding

Recording queuing times is critical, but also challenging. Sometimes a queue to enter a BCP

may be several kilometers long. Long queues make it diffi cult in practice for observers to record

queueing times, or to distribute data sheets to drivers, as observers have to travel long distances

outside the BCP zone. One way to address this is to hire more observers. Alternatively, observers

may be transported by car along the queue. However, this second option may be technically

diffi cult, or impracticable and unsafe, as roads near the BCP gate are often highly congested. A

third option, and one used for the Belarus BCTR study, is to briefl y interview drivers at the entry

gate to fi nd out when they joined the queue or how long they had already been in the queue.

Language barriers need to be considered

Cross-border movement of goods can involve transportation companies and drivers from mul-

tiple countries, and language diff erences can cause diffi culties. It is important that observers

have foreign language skills, and that the questionnaires are multi-lingual. In Belarus, the design

of the questionnaires and the involvement of observers helped to reduce the need for commu-

nication with the drivers, and eliminated altogether the drivers’ involvement in data recording.

However, data sheets were only available in Russian, causing problems in the survey process.

11

May 2017

Looking at the results – selected insights and lessons

The more developed a system, the more diffi cult is to make further improvements. In a sophis-

ticated system of controls, reform demands a high level of precision to identify pressing issues

and specifi city in designing practical reforms. This was the case in the Belarus study. Below are

some of the survey fi ndings.

Border-crossing times start from joining the queue, and include any waiting time needed for subsequent operations

Queueing and waiting times are essential indicators in identifying and addressing critical bottle-

necks in the border-crossing process. Queuering times to enter a BCP may be even longer than

the total time needed for clearance inside the BCP. Thus, it is critical to start the time calculation

from the moment a truck joins the queue in front of a BCP gate, not when it enters the BCP.

Similarly, waiting times to undergo a specifi c control action may be longer that the action itself.

Customs authorities often focus on the time spent on Customs control inside the BCP, disre-

garding queueing and waiting times. Moreover, Customs often only consider the time spent on

an actual operation, not the waiting times prior to the operation. This was the case with Belar-

us Customs. The Belarus BCTR study team therefore paid particular attention to ensuring that

queueing and waiting times were captured accurately and without bias.

The queueing times in front of the Polish BCP gate for trucks exiting Poland and entering the

Belarus BCPs were far longer (from 5 to 20 times longer) than the queueing times in front of

the Belarus BCP gate for trucks exiting Belarus to enter Poland. In general, a long queue at

the exit BCP indicates insuffi cient physical release capacity and/or ineffi cient control proce-

dures at the entry BCP, because clearance procedures for outgoing goods (exit) are usually

fewer, and therefore faster, than those for incoming goods. In this case, long queues in front

of the exit BCP (Polish side) indicate possible ineffi ciencies in the control procedures at the

entry BCP (Belarus side). Another factor to consider is the ratios of loaded and empty trucks

entering the bordering countries, since the clearance of incoming loaded trucks usually takes

longer than that of empty trucks. Over 95 percent of trucks entering Belarus from Poland,

were loaded, while the share of loaded trucks entering Poland from Belarus was around 50

percent.

BCP Inbound Outbound

TOTAL TOTALPoland Belarus Belarus Poland

Bruzgi 3h 47 m. 2h 13 m. 6h 1h 24m. 1h 10m. 2h 34m.

Berestovista 2h 50m. 2 h 4h 50m. 1h 20m. 1h 2h20m.

Border-crossing times, including queueing times

BelarusPoland PolandBelarus

12


The proportion of time spent waiting for business processes in the Belarus BCPs was high.

The waiting times to start inspection actions by Customs and other border agencies, after a

truck arrived in the physical examination zone, were often longer than the inspection itself.

For incoming consignments at the Bruzgi BCP, the average waiting time was 2.4 times lon-

ger than the average time required for the inspection itself, while at the Berestovitsa BCP the

average waiting time and average inspection time were equal.

Customs control times increased dramatically in cases where the documentary package

submitted by the declarant were incomplete, or where Customs requested additional doc-

uments. For instance, in the Berestovitsa BCP, when documents were incomplete, the dura-

tion of Customs control for inland traffi c increased 2.8 times.

Border-crossing times increase with traffi c intensity at the BCPs

Such a relationship was observed for both outbound and inbound fl ows on the Belarus, Polish,

and Lithuanian sides. This may indicate ineffi ciencies in border-crossing processes (related to the

physical layout of the BCP or control procedures), some of which were revealed by the study.

It was noticed that when there was an increase in the load (traffi c) at a BCP, the average

duration of Customs control rose. For instance, the impact of preliminary Customs control

(including waiting time) of incoming trucks – a control carried out before parking the truck

and approaching the Customs offi ce for clearance – increased with traffi c intensity. At the

Berestovitsa BCP, the waiting time increased more than twofold during peak periods. This

control action involved preliminary document screening, external visual examination of the

truck, and physical examination of the driver’s cabin by a Customs offi cer.

Time pressure can be handled by enhancing the risk management system

A time-traffi c relationship indicates the need to enhance eff ectiveness in the selection of cargos

for inspections, i. e., only high-risk cargos should be subject to intensive controls, while low-risk

cargos should be cleared via simplifi ed and faster procedures, with minimal control.

The most common type of physical examination observed in the Belarus BCPs (for Customs

and SPS controls) was tailgate examinations. The experience of many countries in the Europe

and Central Asia region demonstrates that tailgate examinations of all cargos is a remnant of an

historical total control culture, and unnecessary if using contemporary risk-based controls. With

more eff ective risk management, this type of examination can be reduced or even eliminated

for low-risk cargos, without damaging safety and/or the fi scal objectives of a government.

Belarus Customs operates a sophisticated risk management system, and its offi cers possess

skills to assess risks based on experience and historical data. However, the study revealed an

institutional preference for manually confi rming automated targeting outcomes and obtaining

authorization from higher-level management for intervention (adding extra time to the pro-

cess). The lack of confi dence in either automation or the capability of operational staff , and/

or imperfections in the business processes of decision-making, suggest a need to: (a) further

enhance risk profi les and validate their eff ectiveness; and (b) further streamline the risk-related

decision-making process with a view to increasing the level of automation.

Eff ective risk management is also critical for other border agencies, given that the time between

the start and end of Customs clearance includes clearance by other agencies. Thus, in addition

to eff ective coordination and optimization of business processes, it is important that the risk

management system also allows all agencies to feed data into the system, especially for Belarus

given its desire to implement a “two agencies at the border” reform.

13

May 2017

The impact of other agency operations is signifi cant

Control activities of other border agencies have a signifi cant impact on overall clearance and

border crossing times, especially when such controls involve physical examination. A large pro-

portion of inbound trucks in the Belarus BCPs was subject to non-Customs controls. For in-

stance, at the Bruzgi BCP, 33 percent of inbound trucks were subject to sanitary/health controls,

17 percent were subject to phytosanitary controls, and 13 percent were subject to veterinary

controls.

As shown in Figure 1, for inbound cargos, SPS controls accounted for 27 percent and 31 percent

of total average time spent by drivers of trucks on formalities at the Customs offi ces in Bruzgi

and Berestovitsa, respectively. For outbound trucks, the shares of Customs clearance times were

26.7 percent and 20.8 percent, in Bruzgi and Berestovita, respectively.

SPS controls involved frequent physical examinations. For instance, over 95 percent of physical

inspections of incoming goods at the Bruzgi BCP were conducted by the phytosanitary agency,

probably because this BCP was more frequently used for fruit and vegetables.

Of all the non-Customs controls, certifi cation of conformity (standards) resulted in the great-

est delay, even longer than the delays for goods subject to restrictions. It is also the control

that is easiest to move inland (away from the BCP) without any signifi cant increase in risk.

Customs brokerage services in Belarus were mainly provided by a state-owned company, Bel-

tamozhservice. The services required a considerable amount of time: at the Bruzgi BCP, over 36

percent of incoming transactions used Beltamozhservice, requiring an average 30 percent of

total time spent on formalities at the Customs offi ce. This could either be due to traders’ frequent

failure to submit complete and accurate documents, or ineffi ciencies in Beltamozhservice’s op-

erations.

BruzgiBCP

Payments

Customs brokerage

Customs clearance

Figure 1: Clearance time distribution at Customs offices (inbound flow)

SPS clearance

7%

30%

36%27%

4%

31%

34%

31%

BerestovitsaBCP

14


Some processes are out of Customs’ (and other border agency) control

Some activities undertaken by drivers or goods owners – of a voluntary or commercial nature –

impact release time and are often outside Customs’ (and other agencies’) control.

Time spent by drivers relaxing or/and shopping in duty free shops impacts border-crossing

times, but is outside Customs’ control. The average time spent by drivers of outgoing trucks

from Belarus inside the BCP zone after completing all controls was around one-quarter of

the total time spent on the Belarus side (23 percent at Bruzgi and 27 percent at Berestovista).

In some cases, drivers’ decisions were aff ected by external factors unrelated to Belarus pro-

cedures, such as commercial demands or regulations in third countries through which the

trucks were to travel. For instance, drivers of trucks destined for the EU delayed their depar-

ture from Belarus to comply with demands from transport operators and consignees, or

because of restrictions on HGV movements imposed by EU Member States (e. g., Germany).

Another factor that resulted in an uneven distribution of traffi c volumes was the diff erent

fuel taxes applied by EU Member States (e. g., Poland and Lithuania). This resulted in the most

direct routes not always being chosen. For example, a limit on the export of fuel to Poland

and the absence of any restrictions in Lithuania led to the use of the Privalka BCP (bordering

Lithuania) mainly for outbound fl ows, while the Bruzgi and Berestovitsa BCPs (bordering Po-

land) were mainly used for inbound fl ows. This distorts traffi c volumes and makes it diffi cult

to utilize infrastructure and resources in the most effi cient way.

15

May 2017

Conclusion and outlook

The tailor-made border-crossing time study in Belarus helped reveal important insights into

the border-crossing process and identify possible opportunities for reform. In addition to the

improvement of physical infrastructure, enhancing the risk management system and the rel-

evant business processes were identifi ed as areas for further improvement. Following reform

implementation, this study will be repeated in order to monitor developments and evaluate the

impact of reforms.

Border-crossing is only part of the process

Border-crossing is an important stage in the total clearance and release of goods, but it is not the

whole story. Customs and/or other authorities are usually interested in speeding up procedures

at BCPs, but this often leads to moving the delays inland. Many critical control and clearance

procedures occur at inland terminals, and not at the BCPs, such as customs valuation and duty

payment procedures, mandatory conformity assessment (certifi cation) procedures, and physical

examination by SPS agencies. These procedures often require signifi cant time to be spent inland,

while goods wait at terminals prior to being cleared and released.

For trade facilitation reforms to be fully eff ective, it is therefore important to supplement a BCTR

study at border-crossings, with research and analysis of inland clearance and release processes

in order to have a complete picture.

16


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in the system

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t11.1a start & t11.1b end of payment of fees

t15Exit from

BCP

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t14Depart from Parking lot

t11electronic queueing for

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t8 start & t9end of preliminary Customs control

t7 start & t8end of passport

control

t5 start & t6end of weighing and

transport control

t4 Border police

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BCP

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7

Annex 1. Border-crossing process fl ow-chart (with time stamps and observers), incoming traffi c (Poland-Belarus)

17

May 2017

Annex 2. Questionnaires – Belarus border-crossing time study (incoming traffi c)

BCP name: __________________ Date: __________________WORLD BANK GROUP

INTERNATIONAL FINANCE CORPORATIONCENTER OF SOCIOLOGICAL AND POLITICAL STUDIES UNDER THE BELARUS STATE UNIVERSITY

Moving Data Sheet (#0) for measuring time for control actions (for incoming traffi c) – IMPORT, TRANSITDear drivers! We are inviting you to take part in the research project «Study of Cross Border Trade Clearance Times in Belar-us». The collected data will make it possible to optimize the process of border-crossing and clearance procedures. Would you pass this questionnaire to the employees of the corresponding services for fi lling? When all the procedures are fi nished, while leaving the territory of the border-crossing point (BCP), could you hand the fi lled-in questionnaire to a staff -member at the BCP exit, please?Dear offi cers of Customs and other border agencies! Please, fi ll in corresponding boxes in the table.

PLATE NUMBER OF THE TRUCK:__________________

# ActionsStart time End time

hour minute hour minute

1 Weighing of the trucks and transport control

2 Passport Control

3 Preliminary Customs Control

4 Payment of fees and duties in the bank

5 Preparation of documents with Customs (broker) Service (Beltamozhservice)

# ActionsStart time

Docu-ments com-plete?

Additional docu-ments

requested?

Participated in control action?

(please, specify in which)

Samples taken? End time

hour minute yes no yes no External (visual)*

Tailgate exam.**

De-tailed yes no hour minute

6 Control actions by Veterinary agency

1 2 1 2 1 2 3 1 2

7 Control actions by Phytosanitary agency

1 2 1 2 1 2 3 1 2

8 Control actions by Sanitary/Health agency

1 2 1 2 1 2 3 1 2

9 Control actions by Customs

1 2 1 2 1 2 3 1 2

*External physical examination (visual examination, without opening the truck)

**Tailgate examination (opening the truck, identity verifi cation, without moving, unloading and loading the goods)***Detailed examination (physical examination, which involves opening of the truck, moving and/or unloading and loading the goods, open-ing packages of the goods)

10. Additional information about the cargo and the truck (to be fi lled in by Customs offi cer): 1. Empty. 2. Loaded11. Number of consignments (CMR): ___________12. The number of product types: ___________13. Product type: 1. Perishable 2. Subject to certifi cation 3. Subject to restrictions14. Type of Customs Formality: 1. Import for free circulation 2. Transit to Eurasian Economic Union (EAEU) 3. Transit to a third (non EAEU) country 4. Other (please specify) _______________15. Examination via X-ray scanning (at the Station of Inspection and Physical Examination)? 1. Yes 2. No16. Time of departure from BCP: _____ (hour)/ _____ (minute)

WE THANK YOU VERY MUCH FOR PARTICIPATION IN THE SURVEY AND WISH YOU SUCCESS!

18


INCOMING TRAFFICObserver #1 (Poland)

Data Sheet (#1) Entry to the territory of the BCP on the Polish sideBCP name: __________________ Date: __________________

Name of the main observer: ___________________

#Plate number of

the vehicle/truck

Waiting time from the monent of joining the queue to the moment of entry into BCP (information obtained from drivers)

Time of entry into BCP


INCOMING TRAFFICObserver #2 (Poland)

Data Sheet (#2) Entry to the territory of the BCP on the Polish sideBCP name: __________________ Date: __________________


# Plate number of the vehicle/truckTime of exit from BCP

hour minute

INCOMING TRAFFICObserver #1 (Belarus)

Data Sheet (#1-1) Entry to the territory of the BCP on the Belarus sideBCP name: __________________ Date: __________________


# Plate number of the vehicle/truck

Time of entry into BCP Time of issuing the Control Slip


INCOMING TRAFFICObserver #2-3

Data Sheet (#3) Preliminary Customs control (carried out by Customs offi cers).BCP name: __________________ Date: __________________


#

Plate number of the

vehicle/truck

The beginning of the external visual examination by the

Customs Offi cer

Control actions by the Customs offi cer (please tick the box)

The end of the examination

hour minuteExternal

visual exam-ination

Physical ex-amination of

the cabin

Opened truck

Other (please specify)

hour minute

19

May 2017

INCOMING TRAFFICObserver #4

Data Sheet (#4) Joining the electronic queue in the Customs Hall (offi ce) for customs clearanceBCP name: __________________ Date: __________________


# Plate number of the vehicle/truckTime of joining the electronic queue

(data from the screen of the electronic queueng system)

hour minute

INCOMING TRAFFICObserver #5

Data Sheet (#5) Platform/zone for physical examination of cargoBCP name: __________________ Date: __________________


#Plate number of the vehicle/

truck

Arrival of the truck for under-going examina-

tion/controls

Beginning of examination

actions by the inspector

Type of ex-amination

Were sam-ples taken for testing?

Inspectors of which control

agencies partic-ipated in control physical exam-

inations&

Departure of the truck from the examina-tion platform to the parking

lot


Ext

ern

al (v

isu

al)

Tailg

ate

exam

inat

ion

Det

aile

d e

xam

inat

ion

yes no

Vet

erin

ary

Ph

yto

san

itar

y

San

itar

y/h

ealt

h

Cu

sto

ms

hour minute

1 2 3 1 2 1 2 3 4

1 2 3 1 2 1 2 3 4

1. External physical examination (visual examination, without opening the truck)2. Tailgate examination (opening the truck, identity verifi cation, without moving, unloading and loading the goods)3. Detailed examination (physical examination, which involves opening of the truck, moving and/or unloading and loading the

goods, opening packages of the goods)

INCOMING TRAFFICObserver #5 (Belarus)

Data Sheet (#5-1) Departure from parking lot to exit the BCP, Belarus sideBCP name: __________________ Date: __________________


# Plate number of the vehicle/truckTime of departure of the truck towards exit

gates from BCP

hour minute

belarus: enhancing border-crossing time release studies to

Documents