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 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.     

Commercialising the management and maintenance of trunk roads in the United Kingdom

Public funding of new infrastructure from money raised through taxes or borrowing has been questioned globally in recent years. One alternative solution has been to finance major capital projects through Build, Operate & Transfer (BOT) schemes. In the United Kingdom, the Private Finance Initiative (PFI) has become established as the procurement method of choice for many projects and services in central and local government. It is a natural development of other changes in government administration which have been introduced over the past few years. Projects delivered in this way enable government to become a buyer of services on behalf of the public rather than a direct provider of those services to the public, taking advantage of private sector management skills and resources in their delivery. The PFI has demonstrated its ability to deliver value for money solutions in projects across a range of capital-intensive public services, but the greatest success in delivering projects has been in the transport sector. This paper outlines how the British Government's Highways Agency has restructured and commercialised the management and maintenance of the strategic road network for which it is responsible, and how it has been at the forefront of developing successful privately financed projects. The paper explains the Agency's particular version of BOT – Design, Build, Finance and Operate (DBFO) projects. These projects are delivering new and improved road construction and maintenance, providing better services to users of the country's strategic road network and achieving significant value for money savings for taxpayers.     

Contract Design,Financing Arrangements and Public Ownership—An Assessment of the US Airport Governance Model

Abstract

US airports negotiate legally binding contracts with airlines and finance large investment projects with revenue bonds. Applying insights from transaction cost economics, we argue that the observed variation in contractual and financing arrangements at US airports corresponds to the parties' needs for safeguarding and coordination. The case evidence presented reveals that public owners set the framework for private investments and contracting. We suggest that airline contracts and capital market control result in comparative efficient investments and act as a check on the cost inefficiency typically linked to public ownership.     

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.     

Private tollroads in urban areas

Governments of all persuasions are increasingly seeking the participation of the private sector in the supply of transport facilities and services. Private sector participation in the financing, construction, operation and maintenance of infrastructure is considered a serious option in a number of countries in the search for ways of providing much needed investment which would otherwise be deferred. This paper considers some economic and financial problems in the private sector provision of major road infrastructure within urban areas. The main issues are attaching prices (i.e. tolls) to the provision of the service, the value of government rights which are being given up either permanently or temporarily, and the identification required by the promoters of the cost of capital which is essential information in establishing the risk. Broader environmental and equity issues are not addressed. If the approach to establishing a private presence in a previously public supply context is handled properly from the outset, the benefits can be significant. Contrarily however, the prospects could be quite undesirable if badly managed, despite the presence of an extended public purse.requests for offprints     

Using risk analysis to determine the potential range of lifecycle costs for urban transit systems

Intense competition for limited public funding for urban transport projects can often result in proponents of individual schemes presenting minimized costs and maximized benefits to funding bodies to try to ensure that their scheme is chosen above others for funding. This presents public bodies with a problem, especially in an era when they are keen to attract private contributions for transit schemes. Risk modelling techniques can be of great assistance in ascertaining ranges of costs and benefits for individual submissions and deciding upon which projects should receive priority-not only those with greatest cost-benefit indices, but also those whose indices have low levels of associated risk to allay the fears of the traditionally risk averse private sector.     

Transport bottlenecks and Tanzania's economic problems

Abstract

The paper discusses Tanzania's transport problems in the context of the prevailing acute economic crisis. It looks at the development of the transport system, especially the rail and road network, from the German days to the new Chinese‐built Tanzania‐Zambia Railway. The East‐West orientation of the major parallel rail lines and roads reflects the dependency of the economy on export‐import trade. A major challenge to the transport system is the haulage of agricultural products, mainly for export but also for the internal market, not to mention the haulage of imported commodities.

The provision and utilization of transport services is discussed in the context of the historical, and institutional setting of the road haulage industry, particularly its public and private sector configurations. Due to scarcity of foreign exchange, both sectors, especially the private, are starved of vehicles and spare parts.

The operation of ocean and lake shipping services and Air Tanzania are discussed. It is recommended that the latter should concentrate on essential domestic services plus some limited regional services. External financing of transport projects and its implications are also considered.

It is concluded that despite the break‐up of the East African transport system, the Tanzanian transport system, although shaky, has avoided major breakdowns and in some cases, especially in trade, has provided the foundation for at least medium‐term improvements. More attention is recommended to organizational problems of track use by freight and passenger carriers and to making the best use of existing facilities.     

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.     

A segregated urban busway system

A transport system has been proposed using buses operating over ordinary roads and over special reserved tracks (busways) on which they might be automatically guided. Using cost and performance data resulting from an earlier technical study (not reported here), a hypothetical network of routes and services in the West Midlands conurbation is studied. Estimates of patronage diverted from public and private transport enable the profitability of the system and its costs and benefits to be assessed. It is concluded that the system could be attractive both in commercial and in cost/benefit terms, providing acceptable means could be found for handling the buses around and through the inner central areas of cities. The net environmental changes, which would result from additional fixed plant permitting more efficient use of mobile plant, have not been quantified.     

Commercially managed road funds: managing roads like a business,not like a bureaucracy

Nearly all countries are seriously short of revenues for investment and maintenance of roads. Improving utilization of the existing road budget has helped to narrow, but not eliminate, this financing gap. Requests for additional resources from the government's budget have fallen on deaf ears, because the road sector has grown too large to be fully-financed through general tax revenues. Government tax systems were not designed to finance major economic sectors like roads. Faced with an acute shortage of funds, many road agencies have introduced tolls on high-volume roads and have invited the private sector to build and operate such roads under concession agreements. Although this has narrowed the financing gap, tolling is only economic on a small part of the road network. Tolls have thus had a relatively small impact on the financing gap. Against this background, and mindful of the fact that roads are now 'big business' on the scale of the Fortune Global 500, a growing number of countries have started to 'bring roads into the market place, put them on a fee-for-service basis and manage them like a business.' The fee-for-service concept, though superficially like the user-pay principle and the associated road funds which became popular during the 1950s, differs from user-pay in a number of important respects. The key differences are that: (i) only road user charges go into the road fund (i.e., there are no earmarked taxes); (ii) the fund is managed by a representative board with half or more members representing road users and the business community; (iii) members are nominated by the constituencies they represent and there is an independent chairperson; (iv) financing arrangements are designed to ensure that money is not diverted from other sectors; (v) funds are managed pro-actively by a small secretariat; (vi) there are published financial regulations governing the way funds are managed; (vii) charges are adjusted regularly to meet agreed expenditure targets; and (viii) there are regular technical and financial audits. Other important characteristics are that most commercially managed road funds are managed through a separate road fund administration, funds are channeled to all roads (sometimes even to unclassified roads) and they are introduced as part of a wider agenda to commercialize road management. Some of these road funds have been set up as road public utilities under a board with powers to set their own tariffs.     

PPPs — True Financial Costs and Hidden Returns

The cost of using private finance is at the centre of the public private partnerships (PPPs) debate, but until now most works considered only the direct financial costs such as the loan interest rate and the shareholders return on equity and were based on various secondary sources. This paper focuses on seven shadow toll deals closed in Portugal between 1999 and 2002 and reports the financial costs of the PPP model considering also the associated transaction costs and is based on detailed information included in each concession's financial base case. The transaction costs include financial costs such as banking fees, due diligence costs and the impact of all cash distribution traps, such as reserve accounts or minimum-level of debt ratios. The PPP financial costs were then compared with the costs arising from raising public debt through a government or a public agency bond. Our analysis shows that the PPP ‘true' financing costs are, on average, 370 basis points above the cost of raising public debt and that the ‘transaction costs' account for around 40% of that financial premium.     

Tolls,Terms and Public Interest in Road Concessions Privatization: A Comparative Analysis of Recent Transactions in the USA and France

Abstract

Recent concessions in France and in the USA have resulted in a dramatic difference in the valuation placed on the toll roads; the price paid by the investors in France was 12 times current cash flow whereas investors paid 60 times current cash flow for US toll roads. In this paper, we explore two questions: what accounts for the difference in these multiples? and what are the implications with respect to the public interest? Our analysis illustrates how structural and procedural decisions made by the public owner affect the concession price. Further, the terms of the concession have direct consequences that are enjoyed or borne by the various stakeholders of the toll road.     

Developments of CO2-emissions and costs for small electric and combustion engine vehicles in Germany

Electric vehicles have the potential to lower emissions in the mobility sector, but especially high costs might hinder their market development. This paper aims to access environmental and economic impacts and potentials by comparing CO₂-emissions and costs of small vehicles. Considering actual data it is analysed, if and under which conditions electric vehicles are financially competitive for private consumers and under which conditions emissions can be saved. For this, a multiple-stage approach is focusing on (1) emissions during production and operation, (2) private costs and (3) external costs of emissions. A model of total cost of ownership is applied for the analysis of private and external costs.Results show that emissions of electric vehicles exceed emissions of combustion engine vehicles in the production phase, but electric vehicles cause fewer emissions during operation. Total emissions can be saved by electric vehicles even with low annual driving distances (2500–5500 km/a today). Results highly depend on the form of electricity production.Today, private costs of electric vehicles exceed the costs of combustion engine vehicles. Due to cost decreases electric vehicles can gain financial advantages in the future. External costs are high, especially for combustion engine vehicles (up to 15% of private costs), but in none of the considered cases high enough to give electric vehicles a financial advantage today. This picture will change in the future.     

Impacts of combining partial and general equilibrium modelling in freight transport analyses – a forest sector case study from Norway

Abstract

The forest sector in Norway is very transport intensive, accounting for approximately 14% of total domestic freight transport traffic on Norwegian roads. This paper presents an analysis linking a general equilibrium freight transport modelling tool with a partial equilibrium model of the forest sector. The freight transport model predicts transport costs, modal split and transport patterns, and the results are treated as inputs to the forest sector model. The objective of the paper is to analyse the modelling effect of taking forest sector model effects back into the freight transport model and treated as new demand. Compared to a base scenario for the year 2020, we compare analyses with and without this new demand from the forest sector model back into the freight transport modelling tool.     

The regulation of the trucking industry—deterministic replacement model application

An attempt has been made to analyze the impact of a country's regulatory policy of its trucking industry on the correlation between the preferable usage of trucks according to national interests and its counterpart according to private interests, by using a deterministic replacement model. Operational data has been obtained from time series derived from a cross‐sectional survey of the country's truck fleet. Trucks were grouped into 15 strata according to characteristics of load capacity, technological specification, and type of fuel. For each stratum the optimal replacement age was determined according to the criteria of minimal average cost of hauling ton × km, maximal average profit, and minimal average annual cost, and the corresponding costs or profits were calculated for both interests. By comparing the optimal conditions in the various strata, the preferable fuel types and load capacities were determined for the national interest and recommendations for regulation have been provided coinciding the national and private preferences in utilizing trucks.     

Impact of Everyday Weather on Individual Daily Travel Behaviours in Perspective: A Literature Review

Despite the hundreds of billions of dollars being spent on infrastructure development -- from roads, rail and airports to energy extraction and power networks to the Internet -- surprisingly little reliable knowledge exists about the performance of these investments in terms of actual costs, benefits and risks. This paper presents results from the first statistically significant study of cost performance in transport infrastructure projects. The sample used is the largest of its kind, covering 258 projects in 20 nations worth approximately US$90 billion (constant 1995 prices). The paper shows with overwhelming statistical significance that in terms of costs transport infrastructure projects do not perform as promised. The conclusion is tested for different project types, different geographical regions and different historical periods. Substantial cost escalation is the rule rather than the exception. For rail, average cost escalation is 45% (SD=38), for fixed links (tunnels and bridges) it is 34% (62) and for roads 20% (30). Cost escalation appears a global phenomenon, existing across 20 nations on five continents. Cost estimates have not improved and cost escalation not decreased over the past 70 years. Cost estimates used in decision-making for transport infrastructure development are highly, systematically and significantly misleading. Large cost escalations combined with large standard deviations translate into large financial risks. However, such risks are typically ignored or underplayed in decision-making, to the detriment of social and economic welfare.     

Appropriate mass transit for developing cities

This paper is concerned with the majority of developing nations who lack large resources for public sector projects. It questions the basis of much mass transit planning and attempts to put forward a more efficient way of reaching decisions. It calls extensively on experience of Metro Manila, capital of the Philippines, where an innovative system of metropolitan planning and administration is throwing a new light on ‘appropriate’ investment in such developing cities.

Mass transit systems as currently conceived in such developing cities—fully segregated rail‐based systems—are unlikely to be affordable (at least for many years) and in consequence scarce resources should not be devoted to developing and evaluating them. Rather, the principal objective should be to provide low‐cost, affordable mass transit—affordable to governments and to passengers. This almost certainly points to road‐based systems, or predominantly at‐grade light rail transit (LRT) systems, which are usually regarded as ‘obviously unworkable’ in developing city environments.

This judgement is questioned and it is suggested the potential of LRT to provide appropriate low‐cost mass transit is not being realized. An approach to determining its potential applicability is proposed. If feasible it should be evaluated against road‐based systems before decisions to implement new mass transit systems are taken.

While circumstances vary between countries the central message of this paper—that public sector resources have a very high opportunity cost which make all but the lowest‐cost mass transit systems very difficult to justify—will hold in all but the higher‐income developing economies.     

Transport and nation‐state governments worldwide

The Sydney Olympics held in September 2000 provided an opportunity to monitor the planning of transport provision for the world's greatest sporting spectacular. As the single largest major event, the pressures on a city's transport system are enormous, as witnessed by the previous Games in Atlanta and Barcelona. This paper takes a value-chain approach to assess transport performance as a crucial element in the delivery of the Sydney Olympic Games. We begin with a brief overview of strategic value, highlighting some generic aspects of value chains followed by the transport delivery system that came to the fore as significant 'drivers' in the value chain. This is followed by a summary of the effectiveness of the buses, trains, taxis, roads and the airport. A more detailed look is provided of the private bus sector where the problems leading up the opening of the Games received a great deal of media attention. The paper concludes with two stories, one good, one not so good, about transport and the Olympic Games.     

Transport Demand Management in Turkey: A Genetic Algorithm Approach

Abstract

This article proposes new models for estimating transport demand using a genetic algorithm (GA) approach. Based on population, gross national product and number of vehicles, four forms of the genetic algorithm transport planning (GATP) model are developed – one exponential and the others taking quadratic forms – and applied to Turkey. The best fit models in terms of minimum total average relative errors in the test period are selected for future estimation. Demand management strategies are proposed based on three scenarios: restricting private car use, restricting truck use and the simultaneous management of private car use and goods movement. Results show that the GATP model may be used to estimate transport demand in terms of passenger-kilometers traveled (pass-km), vehicle-kilometers traveled (veh-km) and ton-kilometers completed (ton-km). Results also show that the third scenario – simultaneous restrictions on private car use and goods movement – could reduce total veh-km by about 35% by 2025 in this study of Turkish rural roads.