Private Provision of Highways: Economic Issues

Abstract

This paper reviews issues raised by the use of private firms to finance, build, and/or operate highways—issues including cost of capital, level and structure of tolls, and adaptability to unforeseen changes. The public sector’s apparent advantage in cost of capital is at least partly illusory due to differences in tax liability and constraints on the supply of public capital. The evidence for lower costs of construction or operation by private firms is slim. Private firms are likely to promote more efficient pricing. Effective private road provision depends on well‐structured franchise agreements that allow pricing flexibility, restrain market power, enforce a sound debt structure, promote transparency, and foster other social goals.     

Public–private partnerships: a review of economic considerations with particular reference to transportation projects

The paper sets in context some of the more recent work that has been conducted on public–private partnerships (PPPs) in the provision and operation of infrastructure. PPPs essentially involve a government or its agent signing an agreement with a private company or consortium to supply it with services with the private sector actor involved in major elements of designing, building, temporarily ‘owning’, and running the physical assets; basically they are long-term development and service contracts between government and a private partner. The paper outlines the development of economic thinking regarding the rationale behind PPPs, the extent to which unbundling is optimal and the forms that it may take, the nature of the contracts that are enacted and their renegotiation, the awarding of contracts, and matters of possible corruption. By way of focus, it also provides some indication of what empirical studies in the transportation have thrown up regarding the outcomes of PPPs.     

Analysis of the efficiency of local government services delivery. An application to urban public transport

In recent years in the European Union (EU), we have witnessed an externalization process of the provision of local government services, in order to separate the political responsibility and the direct delivery of the service. The reasons that justify this process are focused on the belief that the private sector is more efficient in carrying out economic activities, the pressure to reduce the public deficit and the public debt, the search for management systems that bypass public administration procedures, and the increase of control on local governments in auditing and accountability issues.The objective of this paper is to compare the efficiency of public and private sectors in the provision of urban transportation services. This paper shows the results of an empirical study commissioned by the Regional Audit Office of Catalonia (Spain), in order to evaluate the efficiency with which urban transportation services are delivered in the most important cities of this region. This efficiency study has been carried out using the Data Envelopment Analysis (DEA) model, multiple linear regression and logit and cluster analysis. The results allow us to conclude that, in the cities studied, exogenous factors are not relevant and the private management of urban transport service is not more efficient than public management.     

Book Review

This paper examines the relationship between investment in transportation infrastructure capital and the debt-to-gross domestic product (GDP) ratio. We analyse the effect of bringing forward investment originally planned for future years to be executed during times of economic crisis and also consider the possible advantages of carrying out such investments with private sector financing. This paper presents a model which shows how policy aimed to encourage investment in transportation infrastructure projects through private sector participation may help raise long-term GDP and thus lead to a lower debt-to-GDP ratio. The theoretical model is then applied to current empirical data from Israel.     

Planning the driverless city

ABSTRACT

AV technologies have the potential to transform urban landscapes and existing transport systems and networks. Yet, the utopian imaginary of reduced automobile ownership and a new shared economic future sits in tension with suggestions that car dependency, urban sprawl and transport inaccessibility will be exacerbated. The issues are situated in a complex governance landscape involving an influential private sector who are increasingly setting the agenda. The public sector may be forced into reacting to the new innovations by information technology and automobile companies as they are introduced into existing built environments. Drawing on an extensive literature base and interviews with public sector planners, this paper reveals the conceptual gaps in the framing of AV technology – the prospects and limits – and how these are conceived. The paper raises questions about the role urban planning can play in the rollout of AVs in order to anticipate and mediate unwanted built environment and socio-spatial impacts, as well as reconciling the ambition of transport innovation with the public purpose of planning.     

High-speed rail service: Issues for the Detroit-Chicago corridor

Several issues concerning the implementation and operation of high-speed rail service in the Detroit-Chicago corridor are identified and discussed in this paper. The primary concern is whether such a service is likely to be attractive enough to induce the private sector to provide it. While the outlook for private operation appears pessimistic, consideration of a broader range of potential benefits (e.g., direct and indirect employment) may justify public involvement and investment.     

An actuary method for the estimation and comparison of urban bus transit cost of services

This paper presents a new cost allocation method developed for estimating the fully-allocated costs of the excess peak hour bus transit service provided by two public transit systems. The estimates were produced for the explicit purpose of carrying out a realistic comparison of these costs and the costs of the potential provision of the same service by private operators. The method utilizes the same service data for the analysis. The pragmatic estimation of the fully allocated costs of service by the public and private sectors enables a more accurate estimation of potential cost savings. Sensitivity analysis was also performed using the same costing procedure to determine the range of cost savings that are feasible in a competitive contract arrangement of private sector providers. The new method separates costs of the direct provision of service from other indirect costs and thus facilitates the identification of each cost item and its significance in comparative cost estimates.     

Highway finance and the private sector: Issues and alternatives

Private participation in all aspects of transportation has been prevalent throughout the history of the United States. The U.S. approach to transportation finance evolved from European influence. Particularly, the English economist Adam Smith described the role of public works in facilitating national commerce. The notion of user charges or tolls as opposed to general revenue as the source of financial support was offered as a means for constructing and maintaining roads. Highway and transportation development has undergone significant changes in the last few decades. The 1970s ushered in an era of escalating costs of highway development and maintenance. Dependency on imports of foreign oil, global economics, and related events affecting the supply and demand of motor vehicle fuel have had dramatic effects on contemporary means of funding highway programs in the U.S. In responses to this funding dilemma states highway officials began exploring various alternatives for funding transportation improvements. The role of transportation agencies has changed in emphasis since the 1950s. A variety of financial, legal, and logistical issues have forced governments to closely evaluate options for transportation development and finance. State responses to these issues vary. However, there remain a variety of funding alternatives including financing districts, impact fees, tax increment financing, toll financing, and private sector funding.     

Optimal transport strategies for European cities

A new procedure for generating optimal transport strategies has been applied in nine European cities. A public sector objective function which reflects concerns over efficiency, environmental impact, finance and sustainability is specified and a set of policy measures with acceptable ranges on each, identified. Optimal strategies based on combinations of these policy measures which generate the optimal value of the objective function, are identified, and compared between cities. Resulting policy recommendations are presented. The results demonstrate the importance of an integrated approach to transport strategy formulation. They emphasise the role of changes in public transport service levels and of fares, and of charges for car use. By contrast, new infrastructure projects are less frequently justified. In the majority of cities the revenues from car use charges are sufficient to finance other elements in the strategy. However, private sector involvement either in initial financing or in operation may be desirable. Revised objective functions to reflect private sector involvement are specified, and optimal strategies with private sector operation of public transport are also identified. The requirement to meet private sector rates of return for public transport operation typically results in lower frequencies and higher fares; charges for car use then need to be raised to satisfy public policy objectives, but system performance is reduced. This revised version was published online in June 2006 with corrections to the Cover Date.     

Managing with declining resources

Urban public transport has had broad political appeal and escalating financial support since the late 1960s. The preference has been for public ownership and operation of services with only limited private sector involvement in the provision of services in a highly regulated environment. The financial standing of public transport coupled with the likelihood of a sustained period of fiscal restraint, perhaps even a decline in available resources, has created an imperative for change. This paper argues that broad‐based acknowledgment of the financial realities, clear definition of quantifiable objectives and increased authority and control for public transport management is required if public transport agencies are to meet the challenge. A new balance between service, ridership and revenue is required. Managing with declining resources will require a financial planning approach, separation of policy and planning from operations, removal of restrictions on user choice and operator competition and increased involvement of the private sector. Substantial changes in internal organization, procedures and structures and a cost‐effectiveness orientation will be necessary.     

On the financial viability of mass transit development: the case of Hong Kong

Mass transit projects are often a top contender of many cities to meet their increasing demand for travel. Despite the global trend of privatization, mass transit services, as public goods, remain largely being provided and operated by the public sector. Hong Kong is one of the few exceptions that all mass transit services are commercially operated. Both rail and bus services in Hong Kong are reputable for their quality and profitability, often serving as benchmarks for new projects. In this study, we investigate the factors contributing to this success. In particular, we ascertain the quality of transit service provision by the private sector over the past two decades. Then, we conduct an in-depth analysis of the account books of leading railway and bus operators in Hong Kong so as to shed light on their financial viability. Through this study, we hope to present crucial factors for providing financially viable private transit services.     

Commuters’ behavior towards upgraded bus services in Greater Beirut: Implications for greenhouse gas emissions,social welfare and transport policy

Climate change is one of the most critical environmental challenges faced in the world today. The transportation sector alone contributes to 22% of carbon emissions, of which 80% are contributed by road transportation. In this paper we investigate the potential private car greenhouse gas (GHG) emissions reduction and social welfare gains resulting from upgrading the bus service in the Greater Beirut Area. To this end, a stated preference (SP) survey on mode switching from private car to bus was conducted in this area and analyzed by means of a mixed logit model. We then used the model outputs to simulate aggregate switching behavior in the study area and the attendant welfare and environmental gains and private car GHG emissions reductions under various alternative scenarios of bus service upgrade. We recommend a bundle of realistic bus service improvements in the short term that will result in a reasonable shift to buses and measurable reduction in private car emissions. We argue that such improvements will need to be comprehensive in scope and include both improvements in bus level of service attributes (access/egress time, headway, in-vehicle travel time, and number of transfers) and the provision of amenities, including air-conditioning and Wi-Fi. Moreover, such a service needs to be cheaply priced to achieve reasonably high levels of switching behavior. With a comprehensively overhauled bus service, one would expect that bus ridership would increase for commuting purposes at first, and once the habit for it is formed, for travel purposes other than commuting, hence dramatically broadening the scope of private car GHG emissions reduction. This said, this study demonstrates the limits of focused sectorial policies in targeting and reducing private car GHG emissions, and highlights the need for combining behavioral interventions with other measures, most notably technological innovations, in order for the contribution of this sector to GHG emissions mitigation to be sizable.     

Private road competition and equilibrium with traffic equilibrium constraints

Toll road competition is one of the important issues under a build-operate-transfer (BOT) scheme, which is being encountered nowadays in many cities. When there are two or more competing firms and each firm operates a competitive toll road, their profits are interrelated due to the competitors' choices and demand inter-dependence in the network. In this paper we develop game-theoretic approaches to the study of the road network, on which multiple toll roads are operated by competitive private firms. The strategic interactions and market equilibria among the private firms are analyzed both in determining their supply (road capacity) and price (toll level) over the network. The toll road competition problems in general traffic equilibrium networks are formulated as an equilibrium program with equilibrium constraints or bi-level variational inequalities. Heuristic solution methods are proposed and their convergences are demonstrated with simple network examples. It is shown that private pricing and competition can be both profitable and welfare-improving.     

Developing metro-based accessibility: Three aspects of China’s Rail+Property practice

Populous Chinese cities have invested heavily in metro systems and planned proactively for transit-oriented development. Rail plus property (R+P) programs, where metro corporations engage in, and even orchestrate real estate development in or around rail station areas, have been recurrently reported among these cities. However, careful assessment of these programs is still rare in the existing literature. Built upon multiple R+P programs led by Shenzhen Metro Cooperation and/or Hong Kong Mass Transit Railway Cooperation, this article fathoms the rationale for R+P programs in Mainland China, the obstacles for oversea private investors’ participation and the balance between profit making and social goods supply. It finds that R+P programs serve as alternative funding sources for expensive metro projects. It decreases municipal governments’ cash flow contribution to those projects, which is mandated by the central government. In addition, local business environment for R+P projects has disadvantaged private sector participation, especially those private investors from overseas. Furthermore, public subsidy to local metro corporations is likely to persist as R+P programs have not been designed for economic value maximization; rather, they are in place because (1) they reduce the cash flow burden of the municipal government; (2) they are tasked by the municipal government to produce a considerable number of affordable public housing.     

Public/private-sector cooperation in urban transportation: Lessons from ridesharing experiences in Connecticut

An important characteristic of urban transportation policy and planning today is the increasing role that the private sector is playing in identifying and implementing transportation projects. For example, a recent examination of the possible forms of such involvement found that there were four major categories of action that could be used to classify recent private-sector efforts in urban transportation: (1) aid to and/or provision of transportation services; (2) formation of advocacy or advisory groups whose purpose is to influence public policy; (3) sponsorship of transportation studies; and (4) provision of management assistance to public agencies (Gordon, 1982). In many of these efforts, the successful implementation of a project or program required close cooperation between public and private-sector officials. The purpose of this paper is to examine the characteristics of this interaction and explore the implications for transportation planning and policy.Examples of public/private-sector interaction in two Connecticut cities, Hartford and Stamford, are used to illustrate the characteristics of successful transportation program implementation. Although the examples are limited to two cities, and are mainly concerned with one major category of action (ridesharing), the characteristics of the process used and of the results can be applied to other situations where public/privatesector interaction is desired.     

Redefinition of roles and responsibilities in U.S. transportation

Major shifts in U.S. Federal transportation policy are occurring which are realigning the roles and responsibilities of the Federal, State and local governments, and the private sector. These shifts include a decentralization of control to State and local governments, a larger role for the private sector, and reduced emphasis on construction of new facilities and more on rehabilitation and utilization of existing facilities. Although some reaction to these changes is already apparent, it is unclear at this time what the effect will be on improving the efficiency and effectiveness of transportation systems.     

Transport policy for London in 2001 The case for an integrated approach

The paper reports the results of a series of studies conducted to enable the London Planning Advisory Committee to provide advice on strategic transport policy for London. The analytical approach combined the use of an area-based, multi-modal strategic model (LAM) and professional judgment. The performance of LAM as a basis for providing rapid advice on complex issues in transport policy is assessed.The resulting policy advice advocated a coherent approach, involving new infrastructure, particularly for rail; improved management of the road and public transport networks; the use of subsidy to enhance public transport service levels; and road user charges to reduce the impact of private vehicles on congestion and the environment. Road user charges emerged as the pivotal issue in the policy; the paper discusses their role, and the questions which still need to be resolved before they can be implemented.The main message of the study is that no one element of transport policy can tackle London's problems alone; an integrated policy in which infrastructure provision, management and pricing are used to complement one another is shown to be far more effective.     

National policy towards cars: Hong Kong

The Hong Kong transport policy objective is simply, mobility. With this the automobile must conform. A confined land area, difficult to develop, has absorbed excessive immigration and must now service a dynamic entrepreneurial economy.

Transport infrastructure based on major planning studies is created through government capital and is backed by careful legislation, effective administration and private sector participation. The problem is that overall expansion is even faster: widespread urban renewal—roads cannot equally expand; enormous New Territories New Towns—people still want to move in and out so the need for more transport accelerates. Over ten million trips daily are made by 5.5 million people. The answers cannot be more and more private cars: it must be promoting the most effective use of major transport investments, where possible off roads, and the mass carriers on roads. The need to curb congestion by containing escalating car numbers (especially as so far only 17% of households have access to an automobile) led in May 1982 to imposition of severe taxes on ownership. The ultimate and equitable objective is to control usage. Road pricing may be the answer.

In Hong Kong the private cars is part only of a complex strategy including metro, rail, bus, minibus, ferry, taxi and tram. The car cannot take precedence.     

Public sector comparators for UK PFI roads: inside the black box

A public sector comparator (PSC) represents the hypothetical, risk-adjusted cost of a project—such as a road scheme—when that project is financed, owned and implemented by government. A PSC is commonly used in public procurement decision-making as a yardstick against which private investment proposals are evaluated. Using original material released by the UK Highways Agency for the first time, the author recreated the PSCs used for the evaluation of the first eight road projects to be promoted under the UK’s private finance initiative (PFI). Alternative assumptions regarding project risks were modelled using different levels of optimism-bias uplift, and the impact on value-for-money of using different discount rates was evaluated. Public sector comparators have attracted considerable attention in the literature as they retain a pivotal role in the policy decision to use—or not use—private finance. However the fact that their detail is usually kept confidential by public sector procuring agencies—because of commercial sensitivities—has restricted informed discussion and open debate. Now the architecture of these comparators is laid bare for critical examination. It has generally been assumed that any reduction in the discount rate used in PSC calculations will favour conventional procurement over PFI-type contracting arrangements. The research reported in this paper demonstrates that the relationship between the discount rate and the attractiveness of using private finance is not as simple as has been assumed, and the outcome in terms of value-for-money is not as predictable as has previously been reported.