Introduction: the need for a specialized organizational model

For the successful establishment and effective operation of NELS, which in several countries is considered a “Single Window” for the transport and logistics sector (TLS), it is advisable to create a specialized organizational model for implementing such a project. In this regard, the development of the NELS project governance model may take into account the provisions of UN/CEFACT Recommendation No. 33 on Guidelines for Establishing a Single Window.
According to this recommendation, a key success factor in the implementation of NELS in Georgia was the selection of a dedicated “lead agency.” The lead agency must be a strong organization with the necessary vision, administrative authority, political support, financial and human resources, as well as established links with other key implementing organizations.

In general, the organizational model for implementing a NELS project with the participation of a lead organization includes a strategic level, a management level, and a design/development/operation level. Such models were developed by the Completesoft expert group in 2023–2025 for a number of Eastern Partnership and Central Asia countries, including Georgia, Azerbaijan, Kazakhstan, Kyrgyzstan, Turkmenistan, and Uzbekistan. An example of the NELS project governance organizational model in Georgia is presented in Figure 1.

Figure 1. organizational governance model for the NELS project in Georgia

Structure and roles of participants in the organizational model

The Ministry of Economy and Sustainable Development of Georgia acts as the main government authority initiating and overseeing the NELS project. Within this Ministry, the Transport and Logistics Sector (TLS) Department is designated to serve as the “lead agency” responsible for managing the project. In 2023, the National Transport and Logistics Strategy until 2030 was approved, and its implementation is to be ensured by the Interagency Commission for TLS Development in Georgia.

Within the Commission, specialized working groups are established to address different aspects of strategy implementation, including:

• transport corridor management,
• regulatory and legal framework development in TLS, etc.

In this context, experts proposed the creation of a dedicated working group on electronic logistics and Digital Transport Corridors (DTCs) within the Commission. In addition, to coordinate various project activities related to the improvement of digital infrastructure across transport modes, it is advisable to establish a new subdivision within the Ministry’s TLS Department focused on TLS digitalization. This unit would be responsible for overseeing the market activities of the NELS operator. Such an operating company may be established and authorized by a government decision to develop, maintain, and operate the NELS platform.

During the Georgia project, the Completesoft expert team also reviewed public–private partnership (PPP) models for NELS operational activities in the market. The advantage of PPP lies in its complementarity with other available financing sources, allowing the government to act as a stakeholder in a joint venture with a private partner or donors, depending on national context and capacity. As a result of the analysis of possible implementation options for the NELS project in Georgia, the most effective model identified was the PPP OMM model (Operations, Maintenance & Management). Under the OMM model, the public partner (a government agency or organization) forms a joint venture operator for NELS and enters into a contract with it for the operation, maintenance, and management of the system providing the service portfolio. Under these contractual conditions, the state transfers the rights to the created system to the NELS operator in the form of a capital contribution to the joint venture, while the private partner invests its own capital in the operation and development of the platform. As a result, the public partner retains control over NELS infrastructure and services as a shareholder, while the private partner manages the operating company. Thus, operational and market responsibilities are transferred to the private partner.

Development of the roadmap: main stages

Following the selection of the organizational and operational models, the next step is the development of a roadmap for implementing the NELS project.

According to recommendations of international institutions, roadmaps for national project implementation generally include the following main stages:

1. Regulatory stage
At this stage, the necessary legal and regulatory framework must be adopted to enable electronic exchange of business and regulatory information between economic operators and competent authorities (B2G, B2B, G2B, and G2G) in the Georgian TLS.

2. Organizational stage

At this stage, government bodies and agencies should:

• complete the development of the governance model and financial model of the NELS project;
• define funding sources;
• develop the project’s technical specifications, including technical characteristics of NELS modules;
• develop a project implementation schedule and estimate the cost of each phase;
• organize procurement procedures and select a main contractor for the project.

3. Development and implementation
At this stage, the core NELS modules and services must be developed and deployed.

4. Integration and pilot projects
At this stage NELS will be integrated with government regulatory IT systems and existing platforms across transport modes. Pilot projects will also be organized for information exchange with all relevant stakeholders and platforms, enabling delivery of core NELS services.

5. Operations
At this stage, the following activities are carried out:

• appointment or establishment of the NELS operating company;
• planning and financing of platform maintenance and development;
• expansion of the service portfolio;
• conclusion of service level agreements (SLAs) with clients.

6. Training and capacity building
Training and capacity development of specialists for the use of NELS in the Georgian TLS sector.

Roadmap for georgia (2024–2025)

Figure 2. detailed roadmap

National programs for transport and logistics digitalization

National transport and logistics platforms and systems

Digitalization of transport and logistics business processes

Digital transport corridors (DTC)