The evaluation of past and future transport policy measures : 10. Internat. Symposium on Theory and Practice in Transport Economics, Berlin (West), 13. - 15. Mai 1985 ; introductory reports and summary of discussions

462 Pages·1985·19.653 MB·English

by  OECD

10th INTERNATIONAL SYMPOSIUM ON THEORY AND
PRACTICE IN TRANSPORT ECONOMICS
BERLIN (WEST), 13/15 MAY 1985
The Evaluation
of Past and Future Transport
Policy Measures
INTRODUCTORY REPORTS
AND
SUMMARY OF DISCUSSIONS
10.Symposium
CEMT ^» ECMT
Berlin (West) 1985
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The Evaluation
of Past and Future Transport
Policy Measures
INTRODUCTORY REPORTS
AND
SUMMARY OF DISCUSSIONS
EClilC
BERLIN (WEST) 1985
THE EUROPEAN CONFERENCE
OF MINISTERS OF TRANSPORT [ECMT]
The European Conference of Ministers of Transport (ECMT),an inter-governmental organisation,
establishedbya Protocolsignedin Brusselson 17thOctober 1953,constitutesaforum fortheMinistersof
Transportof 19European countries1. TheworkoftheCouncil ofMinisters isprepared bya Committeeof
Deputies.
The purposesoftheConference are:
a) to take whatever measures may be necessary to achieve, at general or regional level, the most
efficient use and rational development of European inland transport of international impor¬
tance;
b) toco-ordinateandpromotethe activitiesofinternationalorganisationsconcerned with European
inland transport, taking intoaccount the work ofsupranational authorities in this field.
MajorproblemswhicharebeingstudiedbytheECMTinclude:transportpolicy;thefinancialsituation
and organisation of railways and road transport; problems concerning inland waterway transport and
combined transport; development of European trunk lines ofcommunication; problems concerning urban
transport;thepreventionofroadaccidentsandco-ordination,atEuropeanlevel,ofroadtrafficrulesandroad
signsand signals; traffic trends and long-term traffic forecasts.
Moreover,the ECMTorganises RoundTablesandSymposia.Theirconclusionsareconsideredbythe
competentorgansoftheConference,undertheauthorityoftheCommitteeofDeputies,sothatthelattermay
formulate proposals for policydecisions to be submitted tothe Ministers.
The ECMT is equipped with a computerised Documentation Centre.
TheSecretariatisattachedfromanadministrativepointofviewtotheSecretariatoftheOrganisationfor
Economic Co-operation and Development (OECD) which distributes its publications.
1. Austria. Belgium. Denmark, Finland, France,Germany.Greece, Ireland,Italy, Luxembourg,theNetherlands. Norway,Portugal,
Spain.Sweden.Switzerland,Turkey,theUnitedKingdomandYugoslavia(associatedcountries:Australia,Canada,Japan,UnitedStates).
Publiccnfrancaissouslelitre:
^EVALUATIONRETROSPECTIVE
ETPROSPECTIVEDESMESURESDE
POLITIQUEDESTRANSPORTS
© ECMT, 1985
ECMTpublications are distributed by theOECD Publications Office,
2, rue Andre-Pascal, 75775 PARIS CEDEX 16, France.
TABLE OF CONTENTS
Opening session
INTRODUCTORY REPORTS
Topic 1: AN OVERVIEW OF EUROPEAN TRANSPORT POLICY [OBJECTIVES
AND MEASURES]
G. Aberle (cid:9) 15
E. R1bu (cid:9) 41
Topic 2: INTERNATIONAL GOOOS TRANSPORT: INVESTMENT
H.-U. Berger (cid:9) 57
P. Faller (cid:9) 79
C. Reynaud (cid:9) 99
Topic 3: INTERNATIONAL GOOOS TRANSPORT: REGULATION
C. Boutte and P. Hanappe . . (cid:9) 157
0. Rask (cid:9) (cid:9) 183
H. Seidenfus (cid:9) 207
Topic 4: PASSENGER TRANSPORT: REGULATION OF INTERNATIONAL TRANSPORT
T. Bass (cid:9) 229
C. MalauMe (cid:9) . (cid:9) 261
Topic 5: PASSENGER TRANSPORT: INVESTMENT AND FINANCING DECISIONS IN
URBAN TRANSPORT
A. Clerlcl (cid:9) 291
M. Gochet (cid:9) 313
W. Leutzbach (cid:9) (cid:9) 341
J. Valero (cid:9) 367
F.V. Webster (cid:9) ..385
Conclusions of the Symposium
J. Grevsmahl [Chairman of the Economic Research Committee of
the ECMT](cid:9) 427
SUMMARY OF THE DISCUSSIONS
Report prepared by:
H. Austermann (cid:9)(cid:9) 433
OPENING SESSION
Addresses by:
Mr. C. SIGNORILE
Chairman of the ECMT
Minister for Transport
Rome
Italy
Mr. W. DOLLINGER
Federal Minister for Transport
Bonn
Federal Republic of Germany
Mr. E. WRONSKI
Senator fur Verkehr und Betrlebe
Berlin [West]
Federal Republic of Germany
Mr. SIGNORILE
This 1s the tenth occasion since 1964 on which the ECMT has organised
an International Symposium on Theory and Practice 1n Transport Economics and I
wish to thank the City of Berlin and the Federal Minister of Transport of the
Federal Republic of Germany for offering us the opportunity to meet here and
for the welcome we have received.
As Chairman of the European Conference of Ministers of Transport, may I
draw attention to the special characteristics of these symposia which the
Conference organises on a regular basis:
-- they are attended by a wide range of participants, not only from
European countries but also Associate Member countries of the ECMT,
and are as 1t were representative of the transport sector as a whole
Insofar as those present come from business, research and government
circles, thus ensuring that the conditions are right for an
effective exchange of views;
the symposia back up the Conference's other research activities 1n
that they not only broaden the scope considerably by bringing
together several hundred participants but also aim to take stock of
a topic of current Interest 1n the theory and practice of transport
economics.
Lastly, while a symposium provides for an exchange of Ideas 1t also
enables the ECMT to take steps to achieve Its own objectives which are of a
policy-making nature, since Its final purpose Is to take whatever measures may
be necessary to promote the development of European transport of International
Importance. Accordingly, the research activities promoted or undertaken by
the Conference help to shape transport policy along the lines I have
described. While the findings of economic research clearly cannot always be
Incorporated as they stand Into policy-making decisions, the path followed
from research to decision-making 1s a real one and will certainly become
Increasingly Important.
Transport Is.of course one of the fundamental activities 1n our market
economies, and the construction of Europe has led to a substantial Increase In
trade. While this Increase has Improved productivity where transport
operations are concerned, the overall cost of the solutions adopted has not
always been evaluated precisely. Accordingly, factors relating to the
environment, safety and energy now have to be taken Into consideration when
decisions are taken. Moreover, the relative decline 1n transport costs and a
favourable economic climate had previously concealed the problems that the
economic slowdown now obliges us to resolve, thus calling for comparative
analyses of theory and observed fact which 1s also the objective of this
symposium.
By way of Illustrating the links that a symposium establishes between
economic research and policy-making, let me also draw attention 1n my capacity
as a Minister to the problems of concern to us: the free movement of goods.
the concrete result of the construction of Europe from the market standpoint,
means resolving, among other things, the problems relating to:
frontier crossings;
the disparate systems of covering Infrastructure costs;
differences among countries with respect to the regulations
governing transport.
These obstacles to the establishment of a European transport policy are
clearly bound up with the differences 1n national regulations. The question
of the effectiveness of regulations for the purpose of organising economic
activities has been very broadly debated 1n Europe, a debate that 1s of
particular concern to the transport sector, so It 1s appropriate that the
general topic for this 10th Symposium should be "The Evaluation of Past and
Future Transport Policy Measures', since 1t deals with matters that are of the
greatest concern at the present time and which can be handled only by means of
Inter-country comparisons of experience.
The fact that the general topic 1s divided up Into five sub-topics to
be dealt with 1n separate sessions will make 1t possible to cover those fields
of transport which are strongly influenced by regulations since. In addition
to a discussion on the content of and need for a European transport policy,
both International passenger and goods transport will be spedfldally
examined. Owing to the policy-making Implications, the differences 1n trends
as between modes 1s a major subject of study within ECMT, and the symposium;
should help to broaden the analysis 1n this connection. Lastly, an
examination of the selection criteria and methods of financing Investment
projects 1s essential Insofar as the public authorities here play the main
role. An economic context 1n which resources are scarce necessarily. Increases
the value of such analysis.
The need to maintain transport supply 1n such a way as to avoid any
wastage of resources 1s likely to be a guiding thread throughout our debates
at this symposium, since 1t 1s In any event the key Issue for decision-makers
1n this sector.
By way of conclusion I should like to point out that the principle
behind the symposium 1s that of enabling the research specialists to compare
notes on the results of measures adopted both with transport operators and
with those who help to shape policies, the aim being of course to draw lessons
that will be of use In the future for framing European transport policy, an
activity 1n which the ECMT will be participating. Given that policy decisions
are extremely complex owing to their many Implications, economic research 1s
essential. It provides a means of clarifying the consequences of the various
options and 1s therefore prerequisite to any decision. Symposia are part of
this pattern of approach.
I can only hope that this need for a thorough-going assessment of
transport policy measures will be the subject for a fruitful exchange of views
which we shall be able to appreciate to the full when the work of the
symposium comes to a close and when we see how this work 1s used by the
Conference 1n providing grounds for Its policy-making activities. With this
aim 1n view, Ladles and Gentlemen, let us begin our work.
Mr. DOLLINGER
As the Federal Minister of Transport, I Invited this Symposium to
Berlin two years ago 1n an arrangement with the Berlin Senate. I am very
happy that my invitation has attracted such great Interest and I wish all of
you a very warm welcome to Berlin.
May I. express a special word of greeting to:
--! the Chairman of the European Conference of Ministers of Transport
and the Minister of Transport of Italy, Mr. S1gnor1le;
the Minister of Transport of Luxembourg, Mr. Schlechter;
the Minister of Transport of Turkey, Mr. Atasoy.
Those Ministers who were unable to be present have sent representatives, and I
wish them too a very warm welcome to Berlin.
I am especially grateful to the Governing Mayor and the Senators of
Berlin who, with their staff, have done so much to enable this meeting to take
place here In Berlin. As a m1d-po1nt between East and West, a town with a
highly developed transport system and a centre for transport research geared
to the future, Berlin 1s especially suitable as a venue for this Symposium.
Our conference 1s the 10th International ECMT Symposium on Theory and
Practice 1n Transport Economics. The subject, which Is "The Evaluation of
Past and Future Transport Policy Measures", enables us to deal with all the
Important current Issues 1n European transport policy 1n a discussion
concerning transport economics and transport science that Is Intended as a
contribution to practical policy.
Today European transport policy 1s confronted with major tasks.
Europe's economic and political Interdependence has given a completely new
dimension to International passenger and goods transport. Business
enterprises plan, produce and trade on a European scale. Millions of people
travel as a matter of course as tourists to all European countries. This
results 1n traffic flows, especially 1n International road transport,
exceeding all previously recorded volumes of traffic. All the forecasts point
to further double-digit growth rates, especially 1n International road traffic.
These facts must be taken Into account 1n transport policy. It must
promote economic development, which 1s a requirement for higher growth,
greater well-being and high employment 1n Europe. But this policy must also
ensure that operating conditions 1n European transport comply with objectives
of capital Importance such as protection of the environment.
In carrying out these tasks, national transport measures In themselves
are Increasingly Inadequate. Activities concerning transport Infrastructure,
transport market regulation, technical requirements for vehicles and
environmental protection must be organised at European level if they are to be
effective. But above all the willingness to arrive at joint solutions 1n
these areas must exist. May I simply make a few comments on Individual points:
[1]. Transport Infrastructure must be Internationally co-ordinated and
planned since transport markets overlap with one another. International
co-ordination of planning 1s also a requirement for any International
programme Involving government or private funding. However, responsibility
for funding transport Infrastructure should primarily remain 1n the hands of
the governments on whose territory 1t 1s built and maintained. The European
countries should allow nationals and foreigners to use their Infrastructure on
the basis of reciprocity and without payment of taxes. No country should
shirk responsibility for International traffic. Here I should like to define
responsibility as the search for joint solutions conforming to market trends
and not government-Imposed solutions. As a rule the costs and benefits of
International traffic are mutually offset between countries. Thus working out
Individual assessments of the pros and cons of International traffic 1s hardly
the best way of establishing an Integrated European transport network.
However, 1f a country obviously has to meet extra costs for European traffic
owing to Its geographical position, the States reaping the benefit should not
exclude a contribution to the funding of transport projects.
[2]. Pollution, especially 1n the countries affected mainly by transit
traffic, must be kept to a minimum through co-operation among all those
Involved. But this objective should not be pursued by means of bans and
restrictions. Instead an energetic effort 1s necessary to produce
environmentally sound vehicles 1n Europe as a whole. For this purpose uniform
emission and noise values must be established at European level. Combined
traffic can also make an Important contribution to the reduction of pollution
from traffic 1n the main transit countries. Using market economy techniques,
the aim should be to transfer an appreciable proportion of transit traffic to
rail. A determined joint effort by the governments and the transport sector
1s necessary for this purpose. More thought should be given as to how the
railways, combined transport enterprises, forwarders and road hauliers can
organise traffic 1n such a way that the railways carry swop bodies, trailers
and containers on long hauls 1n Europe, while road transport takes over the
distribution side 1n terminal haul operations. The organisation of combined
transport by shipping lines can provide guidance here.
[3]. Customs formalities at frontiers still Involve many operations that are
Incompatible with International co-operation and cause time-consuming and
costly halts at frontiers. Here a decisive Initial step must be made towards
simplification and mutual recognition of documents and checks, 1n other words
towards mutual trust 1n Europe. The one-week standstill 1n traffic on the
Brenner Pass 1n February 1984 made all those with responsibilities In this
area realise the Importance of smooth customs clearance procedures. Germany,
France, Italy, Switzerland, Austria and the Benelux countries have recently
concluded a series of agreements to facilitate frontier formalities.
[4] The railways must be enabled to take over a considerably higher share
of European traffic. National attitudes and traditions have long prevented
the railways from fully exploiting their specific advantages 1n European
transport. A boost to technical Innovation, considerably higher speeds and
basically new forms of International railway co-operation are necessary to
bring about a change 1n this respect. I see the current studies on a fast