NEW SOLUTIONS FOR ADMINISTRATION, PRODUCTION AND FUNDING OF THE TRANSPORT SYSTEM IN FINLAND

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1 NEW SOLUTIONS FOR ADMINISTRATION, PRODUCTION AND FUNDING OF THE TRANSPORT SYSTEM IN FINLAND Tiina Korte Ministry of Transport and Communications, Finland 1. FOREWORD Finnish Ministry of Transport and Communications has gone through a major undertaking to overhaul the country s transport administration system during the past ten years. Over these years offices and agencies engaged in production or business and services operations have been transformed into state owned corporations or enterprises, state enterprises have been transformed into joint stock companies and the sector as a whole has been opened up to competition as far as possible. New agencies have been created to take up the functions of authorities and address the needs of competitive bidding, and regulative role has been clarified. In April 2002 Mr Samuli Haapasalo and Ms Tiina Korte, the author of this paper, were assigned by the Minister of Transport and Communications, Mr Kimmo Sasi to explore and open to debate a broad and comprehensive study related to the authorities functions, tendering and purchasing, and funding of the transport infrastructure. We did the study and came to the conclusions independently as experts without either political or official guidance. On the basis of our analyses we have arrived at three proposals that address the following questions: efficient and customer-driven organisation of transport and infrastructure administration the increased value and competitiveness of the transport sector including state enterprises and companies meeting the financial deficit in the transport infrastructure. The proposals were published in November The reception has been somewhat mixed: they have been described as radical, innovative and justified

2 but also as threatening and liable to cause conflicts. So far only some of the proposals have been taken into further preparation. 2. BROAD REVIEW We have studied the Finnish transport system and infrastructure maintenance from the points of view of traffic corridors, customers, administration, production, industry and funding. We found out that the development of administrative, productive and financial functions need to proceed simultaneously; we need more projects under competition, more competitive producers and an administrative authority well capable to tender and purchase the infrastructure. Adequate progress in any of these calls for simultaneous strengthening of them all. Furthermore, we need a competent and professional analysis of customer expectations and satisfaction as well as of their willingness to pay. The customership in the field of transport needs to be considered more businessoriented so that the administration can determine and optimize the level of service and the development needs of the transport infrastructure. The proposed reforms are aimed at strengthening the status of transport services in Finland, particularly with a view to the national economy s future competitiveness. Modern society and competitive economy cannot survive without an efficient, high-quality transport system. It represents the nation s circulation, where even minor disturbances are liable to cause major problems as well as direct and hidden costs. This is particularly true in the case of Finland where distances are long, the population widely dispersed, winter conditions are difficult and transport needs vary widely between different regions. We have a comparatively small population spread out across a large area, and every individual has the right to mobility and transportation services regardless of where they live. An efficient transport infrastructure needs to be well organised in terms of its administration, production, maintenance and funding. Infrastructure production services in particular involve a great deal of industry, where it is essential that there is open and fair competition. The transport infrastructure also represents a

3 major property asset for the government: the value of that asset and its efficiency in national economic terms must be well looked after. 3. STARTING POINTS 3.1. Administration As a result of restructuring by the Ministry of Transport and Communications we have a system where each mode of transport has its own administration. These agencies are the Road Administration, Rail Administration and Maritime Administration. In addition the Vehicle Administration is run more or less independently of these three agencies. The Civil Aviation Administration was set up as an unincorporated state enterprise in Before the structural changes, approximately employees worked in these agencies, whereas today there are civil servants. Consequently the administrations of each transport mode are now separate. On the other hand, we know that the majority of travel is multimodal. The same customers use the services of all these agencies Market situation The government continues to have a dominant role both in tendering and purchasing and in infrastructure production. The state tendering accounts for around 40 per cent of the total annual volume of infrastructure development. State enterprises and companies, for their part, account for some 25 per cent of annual infrastructure construction and maintenance. The structure and development of civil engineering and related planning operations differ from those in many other industries both in Finland and elsewhere. The business structure is highly fragmented. Most companies are very small, inadequately networked and have limited capacity for competition. In some areas the markets are immature and there is not enough competition to create proper market conditions. Larger businesses require larger volumes as

4 well as consolidation to boost their efficiency, smaller companies by contrast need to see industry rationalisation and solid networking Need for transport infrastructure funding In spring 2002, the Ministry of Transport and Communications estimated the need for infrastructure investments with a view to the new government period and programme. Current needs to develop transport networks already stand at 3.2 billion euros out of which less than one third can be carried out during the years The most pressing need is for railways. The difference between the need for infrastructure funding and opportunities of central government finances will grow in the future. Road and railway indicators show that the infrastructure is deteriorating and periods between repairs are becoming too long. No new road or rail project can be launched in 2004, nor has any even been suggested for the Budget by the Ministry. The government has planned to take into use the estimated budget margin for already during the first 18 months. In terms of transport infrastructure, this means increasing scarcity; new funding models and methods should be actively searched for. 3.4 Situation in the railway sector Finnish State Railways was a government agency until 1990 and acted as an unincorporated state enterprise from 1990 to A state-owned company was formed in 1995 when the VR Group Ltd was established. VR Group Ltd carries out passenger and freight transport services by rail. The Group also has subsidiaries that provide bus and truck transport services on wheels. A part of the Group is VR-Track Ltd, which holds a 90% market share of rail infrastructure construction and maintenance in Finland. The number of employees in the VR Group amounts to around 14,000. At the same time as the VR Group was formed, a small agency, Rail Administration, was established to administer, develop and maintain the rail network. It employs around 70 people. The annual expenditure on rail infrastructure management is approximately 350 million euros.

5 The demand for rail transport services has remained fairly steady in Finland. As much as one fourth of freight transport is carried on railways. This share has remained the same for decades. In passenger transport, the volumes of commuter services in Helsinki metropolitan area have grown a little during the past few years as a result of improved service level. 4. THE DEVELOPMENT OF TRANSPORT AND INFRASTRUCTURE ADMINISTRATION 4.1. More efficient planning Composed of roads, railways, waterways and air traffic, the national transport system needs to be designed, constructed, organized and maintained in such a way that it provides an efficient service to the whole of society, i.e. to individual citizens as well as business and industry. Separate administrative bodies for the planning of roads, rails and waterways as well as the data and information management do not lead to successful and competent management of the entire transport system. In the arrangement that is now in place, different infrastructure agencies are working separately on their respective long-term strategies and plans, preparing their own plans of action and budgets. As a result, it is impossible to form a coherent picture of current trends in development. Multi-phased and laborious planning process is partly overlapping in these agencies. The planning should be carried out on more equal bases, regardless of the transport mode, when evaluating the societal and customer impacts. More emphasis should be put on the integrated use of the planning tools such as data and information bases, programmes, customer information and implementation of the r&d-results. The interest groups and organizations would also benefit when their problems and aspects related to transport needs were handled in one agency instead of several processes.

6 4.2. New know-how to procurement The most prominent trend and the biggest challenge for infrastructure agencies over the next few years is to tender and purchase the services required by infrastructure maintenance and in this way to define the impacts and outcomes of transport in society. Tendering and purchasing will require new ways of working, a shift in the authority s role from service provider to a demanding customer as well as balanced and open exchange and interaction with other actors. In addition, it is important that the authorities can respond quickly and flexibly and at the same time show sufficient long-term consistency: this is necessary in order to create a genuinely competitive market for the transport sector. The development and evaluation of the tendering and purchasing function must take account of all modes of transport supported from the state budget, i.e. roads, railways and waterways. This will pave the way to fair and equitable practices for the whole sector and the marketplace. The experience of people working in different areas of infrastructure management can be put to good use for the benefit of the whole transport and infrastructure administration. Transport data and information services are also a productive function where the same practices of tendering and purchasing shall be applied as in other services. Transport services are currently produced within and by the transport administration itself: the same need for role differentiation applies here as in the case of infrastructure maintenance Core competence into one agency The key roles of infrastructure administration, in Road Administration, Rail Administration, Maritime Administration and Vehicle Administration, are within the fields of expertise, commissioning, development and administration. In principle the core expertise is the same in all agencies: managing transport infrastructures and corridors, market mechanisms and societal impacts.

7 From these and various other vantage-points it seems that the core competencies and functions of the separate infrastructure agencies could be integrated into one organization responsible for all transport and infrastructure issues. Within this new structure, the transport and infrastructure administration would be responsible and have the competence for strategic planning, service standards and management of the transport system, the development of the transport sector and markets, management of the related impacts and information, management of customer relations and PR, infrastructure tendering and purchasing, data and information management, as well as administrative services. All this may be described as government s overall responsibility for the transport system. The new organisation of the infrastructure agencies would see important improvements in at least the following areas: - Customer orientation: A more modern and consistent customer interface could be created within a shorter space of time. There would be greater openness and more cooperation with citizens, greater sensitivity to their opinions, a stronger orientation to networking. - Services: Services would be better targeted and their costs driven down because it would then be possible to prioritize services according to the needs of different customer groups and regions. - Performance and efficiency: Cost awareness and the cost effectiveness of planning, development, decision-making, implementation and finances would improve. There would be less overlap in the work that is done and it would be easier to concentrate on what matters most. - Use of resources and competencies: It would be easier to take account of regional needs. Regional organisations would be strengthened and they would become more useful. Staff member would have better prospects for personal and professional growth and development, to do a meaningful job that inspires a true sense of professional pride. - Tendering and purchasing: Administration would become a competent, efficient, demanding and forward-looking customer; at the same time it

8 would show openness and speed whenever required in tendering and purchasing. Quantities and qualities would increase and improve without any changes in state spending. Practices of tendering and purchasing would be improved and refined. - Creation of market conditions: The state would become a consistent and forward-looking agent, companies would become innovative business developers and producers of reasonably priced services. - Clarity of roles and responsibilities: The tasks of infrastructure expert, authority, regulator and service provider would be distinguished from one another. The clearer overall picture and coordination would optimise the transport system and benefit the whole country. - Efficiency in Ministry operations: The main accent would shift to strategic management, the weight of implementation would move elsewhere. The steering and direction of Ministry operations would be easier, more effective and more consistent. Programme management across administrative boundaries would become possible. 5. DEVELOPMENT OF PRODUCTION IN THE FIELD OF TRANSPORT INFRASTRUCTURE 5.1. Savings through open competition The government continues to have a dominant role both in tendering and purchasing and in infrastructure production. The state tendering accounts for around 40 per cent of the total annual volume of infrastructure development. State enterprises and companies, for their part, account for some 25 per cent of annual infrastructure construction and maintenance. The role of the state is significant in the production business. Consequently the state has a significant role in developing the market towards fully opened conditions and equal terms for all business activity. Structural reforms in the state owned transport infrastructure units are required so that all infrastructure production could be purchased from companies liable to competition.

9 Earlier structural reforms in the administrative sector under the Ministry of Transport and Communications and their beneficial impacts on competition have brought increase of 10 to 20 per cent in cost-effectiveness Developing State-owned transport infrastructure production units Two state-owned transport infrastructure production units are the VR-Track Ltd in the Group of Finnish State Railways (VR-Group) and the Road Enterprise. VR Track Ltd provides rail track planning, construction and maintenance services. In 2002 it had a turnover of 240 million euros, with the Rail Administration accounting for close on 90 per cent of orderbooks. The Road Enterprise is engaged in the planning, construction, maintenance and care of traffic lanes and traffic environments as well as related products and services. It has a turnover of around 550 million euros and a staff of some 3,800. These government infrastructure production units could be developed capable of surviving in an environment of open competition, at the same time as the necessary conditions are created for the development of the markets. This would mean that the two become structurally independent companies under no state protection or special operational conditions. This could help to boost their efficiency and add to their value. The government could then if desired be in the position to take on board a broader ownership, and perhaps eventually sell up altogether. It is clear that the state has to shoulder the responsibility for the transport system and make sure it works properly; but that cannot include itself earth-moving, dredging or building and repairing railways. This development could have the following benefits: - The companies business operation and knowhow could be strengthened and their competitiveness and value could increase. - Prospects could be improved for staff development as well as for better and more flexible job contracts in the long term.

10 - Competition and the market-driven philosophy could help to strengthen and develop the whole transport sector and markets. - The structural reform could have impacts throughout the civil engineering and planning industry and support the inevitable change that could guarantee long-term profitability. - The government could see an increase in the value of its companies, and it could if desired gradually sell of its shareholding in both companies and use the capital assets released for purposes of improving the infrastructure. 6. INFRASTRUCTURE FINANCING Our third proposal concerns the funding of major upcoming investments in the transport infrastructure, on which decisions still remain open. The Ministry of Transport and Communications has produced a set of estimates on investment needs in transport infrastructure and networks for the purposes of the present government period. Current needs, i.e. those visible at the present time, already stand at around 3.2 billion euros. As the state budget is quite limited for the infrastructure in the year 2004 and the four coming years we have analyzed the capital assets in the Ministry s sector that could be usable in this sense. These assets show in the balance sheet resources of the VR Group and in the potential market value of the VR-Track Ltd and the Road Enterprise, which are the two state-owned transport infrastructure production units. When the Finnish State Railways, now called the VR Group, was reorganized as an unincorporated state enterprise and then as a company, it received very strong balance sheet resources. It has an equity ratio as high as 84 per cent. A balanced ratio of equity to borrowed funds provides better guidance and direction to long-term business and investment decisions than does the situation of excess balance sheet resources. The resources that could be released from the VR Group amount up to hundreds of millions of euros even if a strong equity ratio at about 50 per cent was kept.

11 If the ownership base of the Road Enterprise and VR Track was broadened and the government gradually sold them, this too would generate significant funding resources, again around hundreds of millions of euros. If allocated and earmarked to the developing of the infrastructure, these assets could give new possibilities into the field of transport. The total amount of capital thus released would total approximately close to one third of the investment need that is 3.2 billion euros. Provided that no changes are made to the current spending limits in the state budget, our proposal of internal rearrangements within the transport sector would meet the infrastructure funding shortfall within a time frame of about eight years. The benefits yielded by the investments for citizens, business and industry, and thus to society at large and the national economy, could be seen earlier than if the changes we propose were not implemented. Our solution would put to work the capital assets released in two different ways at the same time: they would develop and strengthen both the infrastructure and the related business sector. The investments could create more jobs locally. No taxes or extra fees would need to be introduced to find the extra resources. The solution would be in line with the goals of corporate governance, aiming to develop both the infrastructure and the transport system. 7. DISCUSSION AND MEASURES The views described above, which were presented in order to open discussion, and for reasons of commercial secrecy were prepared by two officials only, aroused quite a lot of interest and also criticism. Comments on the proposals were requested from a wide circle of actors and a more than hundred comments were received from the administrations in question, unincorporated state enterprises and state-owned companies, municipalities, regions, organisations etc. The administrations mainly welcomed the proposals and suggested that all the parties involved would work together and assess the possibilities and structural needs for increased cooperation.

12 Other parties who commented the proposal mainly considered it as a welcome opening for discussion. It would, in fact, benefit several parties: regional organisations would have a clearer field of cooperation, companies in the sector would benefit from a clearer picture of neutral competition and their business would increase. The state-owned Road Enterprise shared the vision in terms of its own future development. However, very strong views against all the proposed were expressed by VR Group Ltd and railway trade unions. VR Group Ltd estimated that it would face bankruptcy and emphasised that future investments of billion euros should be made without loans. The internal construction and maintenance company was considered to be an essential part of the Group, particularly for safety reasons. Railway trade unions gave their full support to the Group management, examples from Europe of lost jobs and identity seemed threatening. Several politicians supported the trade unions and instead of reforms they demanded more responsible action through state budget activities. 8. SITUATION TODAY Along with the new government, development aims in the administrative sector have been reviewed. Therefore, the current direction has been defined by time out, emphasis on cooperation, and controlled progress with the focus on personnel matters. Means to increase and improve cooperative measures between transport and infrastructure administrations are discussed in a working group appointed by the new Minister, but no structural reforms have yet been presented. Only six months ago VR strongly objected the use of company assets for the improvement of tracks justifying its view by the fact that Group assets would be used to finance huge rolling stock investments worth one billion euros. Later on VR has examined the relation between own and debt financing in investments. The Group did suggest that a rolling stock company be established with the municipalities for the investments in Helsinki metropolitan area transport. The company s debt financing would cut in half VR s own finances in stock investments.

13 Competitors continue to criticise VR-Track s operating result achieved through its monopoly status. Competitors estimate that a monopoly status with a good gross profit is used to subsidise the tenders that are under competition. Critics say that separation of VR-Track from the VR Group would bring transparency both ways. All parties have stated, including VR Group, VR-Track Ltd and Rail Administration, that rail transport safety does not depend on the owner of the construction and maintenance company. No new road or rail projects will be launched in the budget for The Minister has appointed a working group to prepare an investment programme for the present government period. Since it appears that no budget funding is available at the moment, the group will not start its work by listing projects but by searching for new financing models. These include the model of forming a fund for infrastructure financing. 9. CLOSING WORDS The sector of transport and infrastructure is quite slow compared to many other sectors. The investments are considered in the long run and the returns and benefits are estimated during a period of years. Planning and decisionmaking themselves are also time-consuming processes. The state agencies were for decades responsible for all the work and projects. The structural reform has been carried out in a relatively short period of time during the past ten years. However when one phase has been finalized, it has always provided better prospects to the next ones. Proposals of new reforms that would take place in a brisk time schedule were understandably not welcomed by everyone concerned. Although the starting points are altogether good, a lot of work is needed to meet the challenges. It is essential to continue the reforms in order to maintain the level of welfare and to enhance the country s international competence. This work is persistent by nature. The role of the state is very central in administrating, producing and financing the infrastructure. Furthermore, it is the state that has to bear the responsibility and take the initiative during the entire process.

14 Conditions for development activities and decision making vary according to political and financial situations. Relative strengths change every four years in the general elections and so does the political focus in transport. Civil servants naturally work in all cases in alignment with the current policy. In this structural stage of development, it has been possible and important to study the administration, production and funding of transport as a whole. When all these parts function well, the infrastructure is a key element of the future success of the society.

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