Workshop report - Public policy and transport

This workshop considered the wider public policy goals of a range of transport interventions. Particular attention was paid to assessing the role of integration of the different components of the transport system and of the integration of transport with other economic sectors. This assessment was informed by Ray Pawson’s realist evaluation approach, with its emphasis on the inter-relationships between context, process and outcome. The context was provided by case studies covering small urban areas, large urban areas and inter-urban corridors. The three key processes identified related to a regulated system with public ownership and control, a deregulated system with private sector ownership (‘competition in the market’) and a system in which there was public planning of the transport system but private provision (‘competition for the market’). Outcomes can be assessed using cost-benefit analysis tools to determine impacts on economic welfare or more qualitative approaches can be used to determine the extent to which accessibility or sustainability goals have been achieved. The evidence provided suggests that wider public policy goals are more important for urban than for inter-urban transport and it thus in urban areas where integration should be pursued with most vigour. The most relevant process for achieving this would seem to be variants of the competition for the market model. Some policy recommendations are made and implications for further research and for future conferences assessed.     

Urban transport lending by the World Bank: The last decade

Over the preceding decade, the World Bank committed about US$7.5bn in loans for urban transport projects in its client countries, involving total project costs of nearly US$13bn. Projects are designed by the client city/national governments and the World Bank in an interactive, give-and-take process. As is common in development finance, urban transport projects entail an investment program and a set of policy and institutional initiatives. A majority of Bank-funded operations in this period focused on public transport modes. A clear and overarching strategic thrust is evident, favoring private delivery of services with a strong public role through city-specific regulatory agencies. Depending on the context, projects involved efforts to introduce private operators and competition into an all-public set-up, or tighten up weakly regulated, “informal” public transport markets. A notable feature of many projects in the latter context is the use of investments in bus rapid transit infrastructure to reach multiple goals: improve transport services, maintain affordability for low-income passengers, attract new passengers, reduce negative environmental impacts, and leverage complementary reforms of policies and institutions. The Bank’s program in China, unique in its local context of a dynamic urban society moving away from a near-universal reliance on bicycles, initially did not focus on public transport but on urban roads and traffic management. Towards the end of the last decade, the motorization process and the outlook of decision makers entering a more mature stage, projects in China started to converge towards what the rest of the Bank’s program was doing – searching for a more sustainable path to urban transport development.     

Population ageing,gender and the transportation system

Across the globe population structures are ageing and how older men and women interact with the transport system is increasingly important in maintaining a good quality of life and inclusion in society. The paper reviews three issues: the nature of older people’s interaction with the transport system by gender; older people’s attitude to travel; and the involvement of older people as road traffic casualties. Patterns of travel in the UK show that older people are heavily dependent on car use, but in the form of more frequent but shorter journeys than younger people. This is especially so for women over 70 years old who, as passengers, are very reliant on males to drive them. Attitudes suggest that there are few obstacles to public transport use, and most agree that bus travel is good, but convenience means many prefer cars. Involvement of older men and women in serious road traffic accidents show that they have lower killed and seriously injured (KSI) rates than 17–24 year old drivers. However, those aged over 70 years exhibit a trend of increasing KSI rates. Analysis of casualty rates of drivers by type of junction, manoeuvre and environmental conditions found that some gender-age groups are overrepresented in certain accident types, including higher serious accidents rates for men, and over representation of older women when driving in poor conditions and turning right and negotiating roundabouts, crossroads and T, Y and staggered junctions. Improvement in engineering design and driver training are suggested together with the need for a greater understanding of the transportation system needs of old and very old people.     

The melting Arctic and its impact on China’s maritime transport

The shrinking of Arctic ice triggers off a new round of competition and dispute in this region, among traditional Arctic states and non-Arctic actors. Like its East Asia neighbours, China sees the melting Arctic Ocean a unique opportunity for itself and international trade generally. The changing physical landscape of the Arctic region will certainly have a major impact on China’s economic future which is very dependent on international shipping. This paper assesses the impact of the ice-free Arctic on the development of marine transport industry in China. The author discusses the potential new routes with the Arctic’s melting and the opportunities that it brings to China’s maritime transportation industry. Challenges that China faces in future shipping through the Arctic will be also addressed from political, legal, economic and environmental dimensions, followed by a preliminary exploration of ways to solution of these challenges.     

Mumbai lunch box delivery system: A transferable benchmark in urban logistics?

This paper presents findings of a freight transport study carried out for Mumbai city (India). Based on the case study of lunch box delivery system organized by the Mumbai dabbawalas, demonstrated that an informal sector was capable of developing an urban logistics system that was precise, reliable and affordable to the middle class society in Mumbai. These facts suggest an approach based on adapting logistics solutions harmoniously to the urban landscape, public policy, infrastructure and skill sets of the company’s employees in order to be attractive to the end customer, offering a good match between supply and demand i.e., consumer and producer satisfaction. At the same time logistics solutions should evolve continuously in order to be attractive to the core customer base and should be customer driven. These basic management principles can be applied in the management of other urban logistics companies in the world over.     

Promoting social inclusion in a deregulated environment: Extending accessibility using collective taxi-based services

Bus based public transport has enjoyed revitalisation in many urban areas but outside large towns and cities its provision and quality remains erratic. Many rural settlements have infrequent services giving rise to social exclusion through transport disadvantage.The UK Government highlighted a need in Towards a Sustainable Transport System (2007) for radical new thinking on rural accessibility to help meet goals of quality of life and accessibility for all and to help meet the challenge in finding carbon friendly ways of meeting rural transport needs. This paper reports work undertaken for the Commission for Integrated Transport, an advisory body to UK Government, on how shared taxi-schemes could be developed within a deregulated environment to meet rural accessibility needs. This is based on an analysis of institutional barriers and comparison between successful mainland European schemes and UK schemes. The paper considers economic viability and the levels of subsidy currently used to provide accessibility in rural areas to show the potential for making current expenditure on rural transport in the UK ‘work harder’ to deliver a collective taxi-based service as part of the public transport mix so as to increase rural accessibility.     

Engaging paratransit on public transport reform initiatives in South Africa: A critique of policy and an investigation of appropriate engagement approaches

A number of South African cities are planning integrated public transport networks that rely on the introduction of Bus Rapid Transit (BRT), in line with similar trends to expand or upgrade public transport services in emerging and industrialised urban transport markets around the globe. In addition, BRT in South Africa is being used as a mechanism to drive reform in the dominant yet highly fragmented paratransit sector, inspired by similar processes particularly in Latin American cities such as Bogotá, Mexico City, and Santiago de Chile. Thousands of paratransit operators would have to formalise their businesses, or merge into new or existing operator entities in order to participate in the new systems. There is, however, an absence of accessible business plans and regulatory regime proposals around which paratransit can be engaged to convince it to alter its current modus operandi. A large number of national, regional and local paratransit groupings have furthermore indicated their resistance to the planned networks on the grounds of insufficient consultation, an unclear future role in the system and employee redundancies. Should this deadlock not be resolved, it seems unlikely that the planned networks will be realised in the proposed timeframes, if indeed at all. This paper investigates the South African passenger transport policy framework that has contributed to the current deadlock, and explores appropriate approaches to engaging paratransit operators on a system of contracting, competition and ownership that recognises the sector’s aspirations and fragmented nature, yet contributes towards improved passenger transport services. It is the authors’ view that paratransit reform is a highly context-specific process, even at the sub-city level, and that this could prevent transferring paratransit regulatory and integration approaches across countries, and even cities in the same country, without adaptation to local conditions.     

A model system for the ex-ante assessment of city logistics measures

This paper proposes a model system developed in order to support ex-ante assessment of city logistics measures. The model system allows us to simulate the choices of each decision-maker involved in the urban freight transport and logistics and to investigate how the policies and the following measures can influence her/his choices.The model system is an open architecture and consists of two levels: commodity and vehicle. The commodity level allows us to analyse the attraction and acquisition movements taking into account the effects due to city logistics policy implementation affecting the end-consumer and retailer/wholesaler/producer (restocker) choices. The freight sold in each urban shop (or in general urban business) is estimated starting from consumption demand and, then, the restocker’s choices for restocking are analysed in depth. The vehicle level focuses on the restocking process and the links between retailer and wholesaler/producer operating in the study area. This level allows us to investigate the impacts of implementing city logistics measures on journey time, timing and path used for restocking the urban retail businesses.     

Workshop report - Public transport markets in development

Developing countries and countries in transition represent between 85% and 90% of the world’s population and face unique public transport challenges that are not necessarily present in developed countries. Issues such as the affordability and accessibility of public transport, funding support and capacity to implement are some of the challenges these countries face. Barriers to strategy implementation in these countries could be a failure to understand the broader business and social environment, poor leadership, a lack of inter-disciplinary and inter-implementer collaboration, and weak monitoring and feedback loops. Weak institutional frameworks are evidenced in inappropriate structures often resulting in institutional inertia and conflict. Over-promising of potential impacts and benefits together with a failure to develop sustainable funding mechanisms often lead to a lack of implementation. The workshop argued that different competition and ownership solutions are needed for a range of factors. This poses a challenge to the THREDBO community as it could mean that the traditional concepts are either not relevant or not usable in the majority of the world’s developing countries, or that the traditional approaches are relevant in many respects but need to be substantially extended and adapted to be applicable and usable in the rest of the world.     

Commuting times – The role of gender,children and part-time work

It has been widely established in the UK and other developed countries that men commute longer than women and that fathers travel furthest to work while mothers travel least. This paper models a wide variety of factors that affect commuting times including gender, presence of children and working hours (part- and full-time work). It finds that of particular importance to the length of commute are the worker’s age, having children, the age of their youngest child, occupation, weekly pay, and mode of transport (with public transport being associated with longer commutes). The region of residence was important for men and women working full-time but not for part timers (except for women in London), while ethnicity and owner occupation were associated with commuting length for full-time men only. The results suggest that while gender, working hours and childcare responsibility are often inter-related, it is useful to disaggregate their effects when modelling or developing policy.     

Travel differences by gender for older people in London

As a guarantee of life quality, older people’s travel demand has to be satisfied, so understanding their travel demand is important. An important point to bear in mind is that older people are not a homogeneous group but that distinguishing between older women and older men in their mobility needs and travel patterns is necessary. Older people’s travel demand needs to be investigated from many different aspects, including trip generation, travel time, and mode choice. In this study, the investigation is focused on older people’s trip chaining, including trip chain complexity, tour composition in a chain.     

Does the political and economic context influence the success of a transport project? An analysis of transport public-private partnerships

The construction and provision of infrastructure services such as transport nowadays is often based on a partnership between three main actors: public sector, private sector and multilateral lenders, under a framework of Public-Private Partnerships (PPPs). This type of partnership has been employed in a wide range of projects in the transport sector and in various contexts in developing and developed countries. Given this observation, the objective of this paper is to examine how countries’ economic and political characteristics contribute to the success of PPPs in transport investments. Special focus in the analysis is given to how the perception of corruption and democratic accountability may influence the success of a PPP project in different transport sectors. We examine a database with 856 transport PPP projects using a generalized linear model in the form of a logit model in order to evaluate the transport database covering data from 72 countries, classified in six regions. The study highlights the importance of national experience. Not only does national macroeconomic experience appear to have a relevant role, but so also does its past experience (either positive or negative) of transport PPP projects. An interesting finding from the analysis is the importance of the rest of the world’s perception of a country’s level of corruption and democratic accountability for the final outcome of a PPP project.     

The regulatory cycle stalled? An assessment of current institutional obstacles to regulatory reform in the provision of road-based public transport in Cape Town, South Africa

Wide-ranging and ambitious proposals for the comprehensive transformation of public transport systems in major South African cities, including Cape Town, have now been in play for a decade or more since the country’s post-apartheid transition. To date, progress in implementing such proposals has been, at best, much delayed and, in Cape Town, appears to have stalled, and may now be significantly compromised. This paper draws on aspects of the concept of regulatory cycles in the bus transport sector to explore some of the key factors which have given rise to this situation, focusing primarily on obstacles embedded in the present institutional framework which governs the provision of road-based public transport in the city. It specifically identifies difficulties in establishing an appropriately mandated and resourced agency at the local level to drive forward the transformation project and the sustained opposition of existing, largely ‘self-regulated’ minibus-taxi operators as key factors which have obstructed the introduction of the proposed regime of ‘regulated competition’. A tentative conclusion is offered to the effect that perhaps a partial or ‘hybrid’ transformation of the public transport system may be the best - and, indeed, possibly the most appropriate - outcome of the transformation process that can be anticipated under the present and foreseeable future circumstances prevailing in the city.     

New Zealand public transport procurement strategies in a new legislative environment

In 2003 and 2004 there were major changes to the legislative environment in New Zealand, with the enactment of the Land Transport Management Act, 2003 which formed the New Zealand Transport Agency. The Transport Agency has a statutory role of assisting and advising approved organisations (usually local government) and approving procurement procedures. Following the introduction of the Land Transport Management Act a review of existing public transport legislation took place leading to the introduction of the Public Transport Management Act early in 2009. This paper discusses the role of procurement strategies in obtaining value for money objectives for public transport services within the new legislative environment. A case study of Greater Wellington Regional Council’s Procurement Strategy for bus and ferry services is presented to demonstrate the usefulness of strategic thinking.     

The place of transport in facilitating social inclusion via the mediating influence of social capital

Social policy makers rarely associate the ability to be mobile with having a role in the facilitation of social inclusion. This paper provides an initial exploration of the association between a person’s travel patterns and their risk of social exclusion. Information is drawn from a major Australian Research Council transport study which interviewed 535 people from Metropolitan Melbourne, Australia. It includes an analysis of the extent of the person’s bonding and bridging social networks, their connectedness to the community, self-assessed level of well-being and their beliefs about whether or not they are able to control outcomes in their life. It was found that those who had the greatest risk of social exclusion, travelled less often and less distance, owned fewer cars and used public transport less, than those who were more socially included. However, those who were more at risk of social exclusion did not identify their lower trips as due to either a lack of transport, or problems with the public transport system. The ability to have good bridging networks appears to be related to increased trip-making and promotion of social inclusion but not necessarily self-assessed well-being which is satisfied by bonding networks.     

Workshop report - Beyond competitive tendering

Most countries contemplating the introduction of competition-based organizational forms did not perceive the British deregulated bus regime to be the way forward. A deeper analysis of facts and an international coverage of the local successes of that regime remained marginal and, as a result, the reputation of deregulated regimes remained bad or - at best - a contentious issue. The rush for competitive tendering was further stimulated by the European Commission’s endeavour to enact a Regulation that put forward competitive tendering of exclusive contracts as the preferred way to organise local public transport markets. Yet, as discussed in this workshop, deregulation in various guises may well play a growing role in local and regional transport. This is already visible in long-distance coach transport and in (international) European railway markets as from 2010. The workshop paper discusses whether such competition-based institutional alternatives to competitive tendering can provide efficiency and service improvements, how such competition-based alternatives should be ‘regulated’ and, alternatively, how a non-competitive direct award could perhaps still guarantee good performance.     

Part II: Policy instruments for sustainable road transport

Without questioning the fact that to achieve efficiency emitters should pay for the true costs of their actions (a core principle of economic policies such as pollution taxes), we find sufficient evidence in the literature to demonstrate that many other policy instruments can be used in combination with taxes and permits to ensure that the transport needs of the present generation can be met without compromising the ability of future generations to meet any needs of their own.The policies and policy aspects considered in this paper broadly fall into three categories: physical policies, soft policies, and knowledge policies. All three aim to bring about changes in consumers’ and firms’ behaviour, but in different ways. The first category includes policies with a physical infrastructure element: public transport, land use, walking and cycling, road construction, and freight transport. We also consider the particular challenges for mobility in developing countries, and how these may be addressed. Soft policies, on the other hand, are non-tangible aiming to bring about behavioural change by informing actors about the consequences of their transport choices, and potentially persuading them to change their behaviour. These measures include car sharing and car pooling, teleworking and teleshopping, eco-driving, as well as general information and advertising campaigns. Finally, knowledge policies emphasise the important role of investment in research and development for a sustainable model of mobility for the future.The main findings can be summarised as follows.

Physical policies

An increase in the use of public transport, combined with a decrease in the use of private cars, can reduce traffic congestion and, more importantly, carbon dioxide (CO₂) emissions, as public transport generally causes lower CO₂ emissions per passenger kilometre than private cars. Public transport fares are subsidised in most places, which can be justified by economies of scale and by the fact that public transport can reduce total road transport externalities. London, Singapore, Portland and Curitiba are all examples of good practice at government level, having achieved reliable, frequent and integrated public transport.Policies to increase public transport use must be part of an integrated policy. Integrated policy refers to integration across different modes of transport, different government objectives (such as the economy, health and the environment), considering the needs of different social groups, and coordinating action between the relevant government institutions. There is evidence that a lack of coordination can jeopardise the achievement of policy objectives.A sustainable model for transport policy also requires integration with land-use policies. These may be somewhat limited within the bounds of existing cities, but as cities grow and new cities are built, urban planners must put more emphasis on land use for sustainable transport in order to reduce congestion and CO₂ emissions. Sustainable land-use policy can direct urban development towards a form that allows public transport as well as walking and cycling to be at the core of urban mobility.Walking and cycling, which improve general health and produce no tailpipe emissions, constitute an excellent alternative to motorised transport on short-distance trips within towns and cities. The policies which can incentivise walking and cycling include crime reduction to make streets safer, well-maintained and clean pavements, attractive street furniture, safe crossings with shorter waiting times, dedicated cycle paths, showers in offices, and lower speed limits, to name but a few.Road construction and expansion used to be seen as one of the most promising ways to reduce traffic congestion. However, in the mid-1990s, the issue was reassessed and it was found that building and expanding roads, increased, rather than decreased, congestion, and ultimately induced higher levels of travel demand. The reason for this is that the extra capacity reduces the general cost of travelling and the less expensive the travel, the more it will be demanded. Regarding freight modal shift, road transport is much more polluting than rail per tonne-km of goods transported and therefore a shift towards greater use of rail in freight transport is desirable. Inadequate infrastructure is the main obstacle preventing this modal shift taking place.Developing countries face great mobility challenges: rural areas are often extremely poorly connected to transport infrastructure, such that, in contrast to the situation in developed countries, the benefits of road construction can strongly outweigh the total costs (including environmental ones). The main challenge, however, is to develop a solution to the problems arising from the combination of urbanisation and motorisation. Integration of transport and land-use policy will be key to rising to this challenge.

Soft policies

Car sharing and car clubs can also potentially reduce CO₂ emissions, although the aggregate reduction in congestion and emissions has not been measured with an adequate degree of precision in the literature. Teleworking and teleshopping can potentially reduce congestion and also CO₂ emissions. However, the evidence for this reduction is rather mixed, as it is unclear whether these measures lead to overall reductions in road transport.Eco-driving campaigns aim to inform and educate drivers in order to induce them to drive in a fuel-efficient and thus environmentally friendly way. There seems to be some consensus in the literature that eco-driving could lead to reductions in CO₂ emissions of around 10 per cent.Information and education policies have often been advocated as instruments which may affect behavioural change. We find in this paper that these types of measures are necessary, but not sufficient for behavioural change. Advertising and marketing may go a long way in changing peoples’ behaviour. In California, for example, Kahn (2007) finds the “Prius” effect: the Toyota Prius is preferred by consumers relative to other similarly green vehicles, probably due to extensive marketing and celebrity endorsements. Family life changes are also found to trigger changes in behaviour ( [Goodwin, 1989] and [106]). People whose lives are being changed by some important development (birth of a child, retirement, etc) tend to respond more to changes in the relative attractiveness of different transport modes. Advertising campaigns promoting a modal shift towards public transport, for instance, may thus be more successful if targeted at people in the process of important life transitions.

Knowledge policies

Research and Development is crucial for developing sustainable and low-carbon transport for the future, and it is essential that governments provide incentives to undertake R&D, so that new low-carbon technologies in the transport sector can be demonstrated and applied at a large scale.Finally, we consider the issue of policy combination and integration. There is evidence that the combination and integration of policies can lead to positive side-effects and synergies. Policy integration is crucial in order to rise to the challenges we face in moving towards a sustainable mobility model. We conclude that classical economic policies may be successfully combined with a number of policy measures discussed in this paper in order to achieve sustainability in transport.     

Escorting economies: Networked journeys,household strategies and resistance

This paper is an exploration of strategies used by households to ensure safe journeys for household members. It has been long been argued that women's travel demand is suppressed. There is no doubt that this is an important issue simply on the grounds that women make up one half of the population but it is also timely and pertinent for policy makers and practitioners as legislation at national and international level asserts and legitimates rights to access, safety and security as demonstrated in the European Union's assertion in the 2007 Green Paper that “Every EU citizen should be able to live and move in urban areas with safety and security”. An understanding of social networks, reciprocity and exchange within and between households is integral to our understanding of travel demand. This paper, through an exploration of micro-social practices, identifies competencies and strategies, such as skills of transaction negotiation, scheduling among household members and across households, escorting, social synchronisation and cost sharing in women's travel, which add to our theoretical understanding of household coping strategies and practices to overcome exclusion. This paper brings together contemporary and historical evidence on the strategies and competencies used by women and in households to ensure safe travel for household members. There is a paucity of data on networked practices and resources which impacts on the efficacy of social policy and societal aspirations for sustainability and inclusion.     

How much can public private partnership really do for urban transport in developing countries?

A few cities in some of the larger developing countries in Latin America and Asia have made increasing use of multi-year concessions or franchises, competitively awarded to private companies, for construction and operation of urban transport infrastructure and for provision of public transport services. In view of the strong prospective growth of developing-country cities with large transport needs, and the rise in the emerging economies of potential new sources of private capital, it is important to see how effective PPP has so far been in this area. The experience is analyzed principally by thorough comparative review of what has actually happened for some of the main users to date: Bogotá, Santiago, São Paulo, Seoul, and several cities in both China and India. Despite delays and mistakes that have been made in development of most of the projects, the overall results, already delivered and in prospect, are very positive and urban public transport is benefiting substantially, with significant side effects on poorer people's access to work and to services, air pollution levels and road accident rates. The widest and most important advantage of the PPP arrangements, as compared with more conventional short-term contracting, is found to be the innovations, technical and managerial, developed, and, in particular, the mutual capacity building of the countries' private and public sectors and their more effective interaction. The experience in the six countries covered suggests that other developing-country cities may be best assisted to develop sound urban transport PPPs more rapidly through provision of help on chosen items among 7 elements that have proved particularly crucial but sometimes weak in the projects reviewed: Civic consultation systems, Land-use/Transport strategic planning, Land/property market management, Monitoring systems, Progressive policies, Economic regulation, and Public institutional framework for PPPs.     

城市中心历史风貌保护区停车管理策略研究

为更好保护城市中心历史风貌,解决复杂的停车供需矛盾问题,通过分析城市中心历史风貌保护区交通特性及主要停车问题并借鉴发达国家老城区停车管理经验,提出了停车管理策略的总体理念原则,探讨了策略的制定和实施。研究认为,城市中心历史风貌保护区停车管理应从保护历史风貌出发,进行全过程、全方位、多层次的系统管理。实践表明,该策略为科学进行此类区域停车管理提供了系统思路,收效良好,有利于缓解区域交通拥挤。