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Interim report by the Government Commission on Transport and Communications

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The Swedish Government Official Report

The Government Commission on Transport and Communications/ Kommunikationskommittén

Kommunikationsdepartementet

S-100 33 Stockholm Sweden

Translation: Roger Kerstin Tanner, Ordvéixlingen

Cover: Elsa Wohlfahrt NORSTEDTS TRYCKERI AB Stockholm 1996

Preface

Sweden makes ten-year—plans for investments in transport infrastructure, plans which are revised every fourth year. In order to engage as wide circles of the Swedish society as possible in this planning process, the parliament decided that an ad hoc parliamentary committee should supervise the planning process for the plan 1998~ 2007. The committee should suggest adequate goals for the investments road and rail infrastructure for this period and should also give advise for a revision of the present transport policy that dates from 1988. The committee called the Government Commission on Transport and Communications. This an English summary of the Commission’s first report. The report focus on suggestions for relevant goals and financial resources for the construction of road and rail infrastructure. The Commission expected to submit its final report in December 1996 which should be a proposal for a new policy for transport and communications Sweden. For further information, please contact the Commission’s secretariat: Kristina Feldhusen, Hans Silbom, Matz Martensson and Marika Engstrom.

Stockholm, March 1996

Rolf Annerberg

Chairman of the Government Commission on Transport and Communications

1996226 Summary 5

Heading for a new transport policy —

Summary

We have been given the task of drawing up a national plan for communications Sweden which will form the basis of a new resolution on transport policy to be passed by the Government and Riksdag parliament the spring of 1998. That plan will be presented final report December 1996. our In this interim report we present alternative approaches and a recommended approach to infrastructure planning for the period 1998- 2007. We also propose experiments four counties for testing a planning process which strengthens political control of infrastructure planning. In addition, present an evaluation of the practical workings of we present-day transport policy. This evaluation has given us a basis on which to specify the transport policy issues which we will be addressing as our work continues.

Heading for a new infrastructure planning

We believe that continued infrastructure development necessary order to safeguard social development and national welfare and to improve the competitive capacity of enterprise. In addition, the infrastructure must be planned a manner compatible with long-term sustainable development. This means that infrastructure development must be guided by fundamental considerations of the environment and human health.

Socio-economic analyses have provided an important foundation

for the framing of our proposals. Not all effects, however, can be analysed by of socio-economic calculations, and many of our means calculations based uncertain presuppositions. Deeper studies and are on supplementary analyses are therefore needed a number of respects.

6 Summary l996:26

Deeper studies prior to the policy decision on focus

Our proposals the focus of infrastructure planning lack several links

on of importance national and international perspective, for which the in a Riksdag and Government have previously declared their support. Several of the sections which can be included the Trans—European Networks TEN could not be included our proposals. Proposed investments in national trunk roads, and partly railways, are now being concentrated the Méilaren Valley region. This a result of the on socio—economic calculations prepared the course of our work and of the budget frames we assumed. The socio—economic analyses indicate that the reduced scope for road investments has led to especially heavy cutbacks on investments national trunk roads southern and western Sweden. This due to the profitability requirements defined and to the difficulty of severe

attaining sufficient profitability those parts of the country, such as

western Sweden, where building expensive. In northern Sweden the investments national trunk roads also cut down, but inputs for are operation and maintenance and load capacity investments are heavely increased. We do not take stand at present concerning the appropriate any distribution of road funds between different regions and investments. This question will be handled in the customary way as the planning continues. This also has reference to the regional balance process within the regions, i.e. how funds will be allocated between spareslypopulated and urban within the regions. Standpoints of this areas areas kind require analyses greater depth and detail than have been undertaken the planning focus study. Studies of alternative standards and designs have the effect of altering the ranking order and with may the regional apportionment of funding. opinion that the distribution of trunk road investments our which the socio—economic analyses have resulted can aggravate regional imbalances. The transport system, however, must be able to developing nationwide, so that will serve its purpose and be go on capable of contributing towards the achievement of various welfare objectives. This cannot be completely captured the socio—economic

calculations, nor possible those calculations to estimate

employment effects.

therefore urgently necessary, our opinion, that continuing

work should include analyses greater depth of national and international links with reference to alternative budgeting and standard

1996:26 Summary 7

levels wider societal perspective. This should also be capable and in a of leading equal regional allocation of investments. to a more Problem fields demanding special further study a national perspective include, for example, through traffic Skane, traffic between Goteborg and Norway and rail traffic central Norrland i.e. the centre of northern Sweden. The national links should then be reassessed by the Government prior to the Riksdag debate on the focus of planning.

Preparedness for labour market policy measures

We have analysed large number of projects which are socioa economically profitable but which have fallen short of the socioeconomic requirements have defined for the inclusion of projects we

planning frame. These profitable projects, presented the focus

our alternative which call the basic alternative, could, however, be we included in special packages for creating jobs through infrastructure investments "employment packages".

Infrastructure planning inseparable from traffic policy

Infrastructure investments cannot be viewed isolation from society and overarching transport policy. Both the necessity and the focus of investments heavily dependent the objectives defined by society are on for transport policy. Equally crucial are the decisions made concerning economic instruments, the structure of cost liability, regulations on vehicles and fuels State procurement of traffic various forms. or Infrastructure planning must agree with policy objectives for transport and the environment. The actions proposed must, for example, far possible be environmentally appropriate and as as conducive to traffic safety. Infrastructure however, of limited significance the measures, are solution of environmental problems. The purpose of infrastructure to provide good opportunities for the transportation of people and goods. The achievement of environmental objectives demands further and above those affecting infrastructure. The same goes measures over for traffic safety objectives. In drawing proposals on the focus of infrastructure planning, up our

therefore, we have made a general analysis of various other measures

needed order for the objectives to be met. A more concerted and cogent analysis of the transport policy and infrastructural measures

needed order to achieve the objectives will be presented final

our

8 Summary 1996:26

report. Several of the measures to be considered are of such a kind that they may come to affect the sum total of traffic inputs and the balance between different types of transport. Thus our standpoints on general issues of transport policy may have an impact on the planning of infrastructure investments.

Analyses of alternative focuses

We have analysed five alternative focuses for the development and maintenance of infrastructure: 0 A basic alternative including all measures which are judged to be socio-economically profitable. 0 An alternative attaching special importance to the objective of a good environment. 0 An alternative attaching special importance to the objective of improved traflic safety. 0 An alternative focusing particularly on the attainment of regional balance. 0 An alternative attaching special importance to business enterprise issues.

These alternatives are compared with a comparative alternative

zero alternative which only includes measures which are expected to

be completed or begun by the New Year 1998. In the light of the analyses of the alternative focuses, we have

drawn up a draft focus for infiastructure planning for the period 1998-

2007.

Proposals for the development and maintenance of infrastructure during the period 1998-2007

Our proposals imply a redirection of infrastructure planning. 0 Following a period of heavy expansion of the national trunk road network, operational and maintenance-related inputs will have to be increased. We propose an increase of rather more than 30 cent per

for operation and maintenance of the entire national road network, compared with the present-day level 1995.

0 For the rail network we propose that the allocation for operation and maintenance be raised by 22 per cent compared with the presentday level. This includes the bringing forward of re-investments to raise the permissible axle load to 25 tonnes.

1996226 Summary 9

0 Heavy investments are recommended to increase the carrying capacity of railway lines and of the regional road network. 0 Of rail and road investments totalling MSEK 58,000 proposed that 60 per cent go on railways and 40 per cent on roads. Investments in the enlargement of national highways are reduced by 0

more than half compared with the existing plan. This partly

because the standard of the road network has been elevated through enlargements recent years and because we have now given

priority to operation and maintenance within a limited budgeting

frame. also connected with a new view of development strategy. We endorse the systematic approach and the development functionally integrated road network which have characterised of a

planning, but we no longer attach any intrinsic importance to a

uniform geometrical and traffic-technical standard. Every part of the national routes should be enlarged at the rate and given the

standards which are justified by its own traffic conditions. The parts

have studied are relatively large and naturally demarcated. we There no question of replacing investments new trunk roads with spot but the big national trunk roads can be divided measures, up into sections with differing traffic conditions. 0 Traffic safety work, for socio-economic reasons, will concentrate implementing measures under the national traffic safety on programme. Measures relating to the road system will be concentrated on spot measures for black-spot intersections and sections instead of larger road investments. 0 Our proposals imply a heavy reallocation from large road

investments to the operation and maintenance of the road network.

Since the poorest road standard to be found on the minor road network in the forest counties, the increased operating and maintenance allocations and load capacity investments we recommend imply an equalisation of regional imbalances road standards. We also recommend special measures for the further encouragement to regional development and business competitive capacity.

We propose a planning frame of MSEK 190,000 for investments and road and rail operation and maintenance during the planning period 1998-2007. This fits well with the investment cut this field resolved on by the Riksdag for the coming budget period. We have also assessed the consequences of changing the planning frame by d:l5 per cent and of a 20 per cent rise costs.

10 Summary 1996:26

Other measures to meet the carbon dioxide target

Our analyses have shown that, of the environmental targets we have defined, the carbon dioxide target the most difficult to achieve. As an intermediate target, we have assumed that carbon dioxide emissions the road sector will decline by 20 per cent between 1990 and 2020. Measures of several different kinds are needed order to achieve the carbon dioxide targets. We have assumed heavier carbon dioxide taxation, regulation of the specific fuel consumption of vehicles and the rapid introduction of bio-based fuels.

Increased carbon dioxide tax

In calculations we have assumed that carbon dioxide tax will be our raised such that the price of petrol, real terms, will rise by a way 10 fire SEK 0.1 per litre and year between 1990 and 2020. The real price rise for the period ending 2020 will then be SEK 2.30 per litre of petrol. A corresponding increase assumed the price of diesel fuel. A large part of the scope created by this taxation revenue ought, our opinion, to be applied to State support for environmental measures the transport sector. Some form of compensation will probably also be needed for travelling long distances to work. If the rise persons fuel prices should prove to have unacceptable distributive effects to the detriment of rural those effects should be offset by means of areas,

regional policy measures the broad sense.

We will be analysing the question of carbon dioxide tax and related supportive in closer detail in our final report. measures

Regulation of vehicle fixel consumption

In order for carbon dioxide emissions from car traffic to be substantially reduced, cars will have to be made more fuel-efficient. There several conceivable ways of inducing improvements the are fuel economics of new cars, e.g. regulations or differentiated taxes. difficult, however, for Sweden to introduce such instruments on its own. International agreements are needed. In specimen calculation we have shown how fuel efficiency will a have to be improved order for our carbon dioxide target to be attainable. We assume that the specific fuel consumption of new cars will gradually decline until 2005. As from that year, new cars are on

to have a fuel consumption of not more than 0.63 1/10 km the

average fuel consumption of new cards today 0.92. Technically this average

1996:26 Summary 11

quite feasible, but will make heavy demands on international cooperation.

Support for the introduction of bio-based fuels

In our calculations we have assumed that from 2010 onwards, biobased fuels will on average provide 15 per cent of the energy content of fuel. This can be achieved through a combination of measures, including both the development of vehicles running on bio-based fuels only, e.g. ethanol or methanol, and low admixture of bio-based fuel to the fossil fuel. In order for this to be possible, both technical development and some form of public support for the introduction of bio-based fuels will probably be needed. We intend to return with proposals on this subject our final report. also necessary for Sweden to make active efforts to secure amendments to the EEC directive on excise duties on mineral oils, so as to facilitate the introduction of bio-based fuels.

Consequences of our proposals and assumptions

Infrastructure measures the national road network outside urban communities have only a marginal bearing on traffic generation and choice of transport. Our proposals, therefore, will have hardly any effect at all on the development of road traffic. The presumed increase carbon dioxide tax and regulation of fuel consumption will between them make motoring cheaper real terms per kilometre. Traffic growth between 1993 and 2010 estimated at roughly 30 per cent. As a result of heavy investments in railways, passenger rail traffic expected to increase by about 80 per cent during the same period. Summing up, our proposals have the following consequences: 0 Substantial travel time savings on certain links Our proposals confer travel time savings both by road and by rail. On the Stockholm—G6teborg and Stockholm—Malmo routes, using the fastest trains, journey times can be reduced to 2‘/2 and 3/2 hours respectively. 0 Reduced emissions of air pollutants and carbon dioxide The focus of infrastructure planning makes little difference to emissions of air pollution and carbon dioxide. The possibility of achieving the carbon dioxide target with 20 a per cent reduction between 1990 and 2020 will depend entirely on the possibility of reducing specific fuel consumption motor vehicles and

12 Summary 1996226

increasing the proportion of bio-based fuels to the extent which we

have assumed. Stricter exhaust rules needed order to achieve the aim of an are 82 cent reduction nitrogen oxide emissions between 1980 and per 2020. Failing this, the reduction expected to be about 65 per cent. The aim of reducing emissions of volatile hydrocarbons will be

achieved in the short term, but the longer term the growth of traffic will necessitate stricter exhaust regulations.

Reduced noise problems on national roads 0

Targeted the form of noise protection will remedy the

measures

noise problems of the 25,000 persons living alongside national highways and exposed to noise levels exceeding 65 dBA. The long-

term target of 55 dBA will not be achieved, however, and serious noise problems will persist on the municipal road network. Improved traffic safety 0

By the end of the planning period 2007, the number of persons killed road traffic expected to have fallen to about 370, as against

589 1994. The number seriously injured expected to decline from 4,221 1994 to about 3,600 2007. Equalisation of regional imbalances 0

The investments operations and maintenance have a strong regional profile. Nearly half the increase will be northern Sweden.

Roughly 20 cent of all frost-damaged roads can be remedied 4,000 per km out of 19,000. Improved opportunities for enterprise 0 The investments operation and maintenance and load capacity improvements will great deal to business enterprise, since they mean a

will improve the for heavy goods transport both by road and by

scope rail. Special investments totalling MSEK 5,350 recommended for are rail freight traffic.

Experiment in stronger political control

We recommend experiments Skéne whereby responsibility for drawing and finalising plans for county traffic facilities LTA for up the period 1998~2007 transferred from the County Administration Board to the Skane Administration. We also recommend that the Stockholm County Council be made

responsible for LTA planning the County of Stockholm instead of

the County Adminstration Board.

Both in Skane and the County of Stockholm, the planning

will be constructed such a way as to strengthen political process

1996:26 Summary 13

control and improve co-ordination between different types of transport systems, between transport and infrastructure and between

infrastructure and other physical planning.

In the Stockholm County experiment, special importance will be attached to developing and testing planning which urban a process

planning and infrastructure planning are integrated with the planning of

mass transit, goods transport and motor traffic. There should be good opportunities for this type of integration the County of Stockholm, where the County Council responsible both for regional planning and for public transport. The experimental activities Skéne and the County of Stockholm must be co-ordinated with the Governments to the proposals response

of the Regional Government Commission and with the experimentation

which those proposals may lead to. A Government Bill expected May 1996. In the Counties of Véistemorrland and Jiimtland we propose experiments aimed at strengthening regional influence the on maintenance of county roads. Certain measures at present classed as maintenance and funded out of the operations and maintenance allocation of the National Road Administration the special load or capacity plan, e.g. frost-proofing and road capacity reinforcement, are instead to be regarded as investments and transferred to the LTA allocations. The corresponding money also to be transferred to the LTA allocations. In this way the counties will have more to say concerning which measures are to be taken and what order.

The experimental activities are to be followed up and evaluated

1998, after which will be considered whether the experiments are to continue, to be changed or to be concluded.

We have only proposed experiments four counties, but we see no

objection to additional experiments being conducted further preparation for the experimental activities should reveal such any interest. We have asked the county administrations to concretise our

proposals on the focus of infrastructure planning at regional level.

They are to report back to us not later than 1st September 1996. We will also be instructing the National Rail Administration and the National Road Administration to describe how political control of national investment plans for the period 1998-2007 to be established.

14 Summary l996:26

Evaluation of transport policy

Our terms of reference require to analyse whether the transport us policy aims in the resolutions passed by the Riksdag between 1988 and 1991 have been achieved. The 1988 Transport Policy Resolution indicates five partial

objectives:

availability, 0 efficiency, safety, environmental quality, regional balance.

The efficiency target has been evaluated behalf by the on our Agency for Administrative Development. The National Road Administration has evaluated achievement of the availability and safety targets the road sector. The National Environmental Protection Agency has evaluated the extent to which the environmental targets have been achieved, while NUTEK National Board for Industrial and Technical

the

Development and the National Rural Area Development Agency have evaluated achievement of the regional balance target. We have received further supportive documentation from the Civil Aviation Administration, the Central Board of National Antiquities, the Swedish State Railways and the Swedish Association of Local

Authorities. In addition, the Royal Institute of Technology KTH,

acting behalf, has analysed the effects of number of new train on our a investments.

Our conclusions on the transport policy pursued

Much has been done since 1988 for the development of transport systems. Traffic safety has improved and emissions of pollutants have diminished considerably, at the time traffic volumes have same as Carbon dioxide emissions, however, have increased. grown. Much has been done to expand the national railways and roads. Air

traffic has been deregulated and shipping still plays a crucial part in

our foreign trade.

1996:26 Summary 15

SJ the Swedish State Railways has developed into an efficient and

highly competitive transport enterprise. High-speed trains have proved to be successful venture, competing very effectively with air a transport and motorism.

The organisation of the transport utilities has been developed and

requirements of efficiency and market adjustment. The adapted to new utilities have been given closely defined sectorial responsibilities for the environment, safety, research etc., at the same time as a co-

ordinated and integrated structure of transport planning being

realised for all types of transport. Transport policy, then, steadily developing, but there are

problems involved of controlling, organising and financing

our way the transport system. Some of the targets set by the Riksdag for transport and the environment have proved difficult to achieve. The following of the important conclusions resulting from are some the transport policy evaluation conducted on our behalf. Input data need to be improved 0 In view, the input data for investment planning must be our improved and clearer guidelines needed concerning the input data are required for different planning situations. 0 Decisions must be followed up

In view, clear rules and distinct responsibility are needed for

our follow—up at both national and regional levels. The results of infrastructure investments should be followed up relation to the targets defined for transport policy and for individual projects. important to make clear whether costs and effects agree with those indicated the input data. Financial responsibility must be reviewed 0 The principles of financial responsibility need to be reviewed and of improving calculations of the marginal socio—economic costs ways analysed, because at present these calculations surrounded by a are great deal of uncertainty. The balance between public planning and free competition in 0 different types of transport systems should be analysed

The evaluations show that the deregulations of air traffic and taxi

services have had both positive and negative effects, although too early yet to on the long-term outcome. The deregulations pronounce to have favoured densely populated areas but to have had a appear number of negative effects regions with lower traffic densities. on essential to analyse whether measures are needed to compensate rural for the effects of deregulation, and to study areas what be appropriate balance between public planning and free may an competition.

16 Summary 1996126

0 The target of regional balance needs to be defined more closely Our evaluation points to the difficulties of operationalising the

target of regional balance and, accordingly, of analysing the degree of

its achievement. An attempt must therefore be made to clarify the

regional balance target.

0 The environmental targets must be defined The National Environmental Protection Agency points to many positive aspects of progress towards a better environment in the transport sector. The long-term environmental objectives are being drawn up in a co-operation project about an environmentally sustainable transport system, called the MaTs co-operation. led by the Swedish National Environment Protection Agency and transport authorities and industry take part. Through the MaTs co-operation there exists an established network which compiling supportive documentation for an action plan, aimed at achieving an environmentally appropriate system of transport the next 25-30 years. At the same time, the National Environmental Protection Agency notes that of the environmental targets set by the many Riksdag have not been achieved. Achievement of the stabilisation target for carbon dioxide emissions especially difficult. urgently necessary to develop both long-term targets concerning the prerequisites of sustainable development and interim targets showing the rate at which the long-term targets are to be achieved. 0 Traffic safety work needs to be broadened The National Road Administration reports a continuous improvement traffic safety. The target set previously for reducing

the number of deaths to a maximum of 600 has already been

achieved. Developments are less positive, however, concerning the numbers injured, although the number of persons severely injured has declined. imperative to develop the "zero vision", i.e. to show how the aim of eliminating fatal road accidents altogether can be achieved. 0 Co-ordination of infrastructure development decisions and traffic use needs to be improved The Swedish State Railways report a positive development of rail passenger traffic. Traffic on county lines has also increased, except in the northern part of the country, where passenger services have been

discontinued on several lines. In many places, however, there

uncertainty regarding the future when the ten-year State funding allocation for services on county lines expires. Another problem observed by SJ and others the risk of insufficient co-ordination between those deciding the infrastructure of the rail network and those

1996226 Summary 17 who will be using the lines. Studies are needed to show how this coordination can be improved.

18 Summary 1996126

0 Bi-modal traffic needs to be developed SJ reports that bi-modal railroader traffic has not developed accordance with the Riksdag target, and the need for special measures to strengthen the development of this traffic must therefore be analysed. In this connection, attention should also be paid to the need for State inputs for transshipment terminals.

Our continuing work

As our work continues, we will be addressing all the problem fields observed the course of the evaluation. We will be studying the principles and general issues of transport policy concerning the way which the transport system to be organised, controlled and financed. In overarching transport policy analyses of the structure of our financial responsibility, the state of competition between different types of transport systems, State procurement of regionally necessary transport etc., air transport and shipping will figure much more prominently than they have done our interim report, the main concern of which has been with the focus of investment planning.

Committee terms of reference

Dir. 1994: 140

Drafting for a national plan for Swedens

communications

Resolution adopted at a Cabinet Meeting on 22nd December 1994.

The assignment in brief

A Parliamentary Committee to be appointed to draft a national plan for communications Sweden. With reference to the 1988 Transport Policy Resolution and the policy decisions taken thereafter concerning a good living environment, development sustainable the long term, the development of an environmentally appropriate system of transport and investments transport infrastructure, as well as investment plans adopted by the Government for roads, railways and county transport installations, the Committee shall: 0 analyse the extent to which the aims of transport policy expressed the 1988 and 1991 Riksdag resolutions have been accomplished, 0 suggest a national plan of communications, based on a holistic approach and calculated to contribute towards the achievement of an environmentally appropriate transport system, while at the same time promoting traffic safety, wellbeing, long-terrn sustainable growth, regional balance and a competitive enterprise sector, 0 put forward proposals for financing communications within the frames of national government finance which have now been decided on,

20 Committee terms of reference

0 analyse the connections between a national plan of communications Sweden and the planning of an environmentally appropriate, safe transport system Swedens larger conurbations and urban regions, identify the needed order to achieve better integration 0 measures and co-ordination than at present of shipping, air traffic and information technology with the land transport system, 0 identify ways in which charges the transport sector can be adapted as to promote an environmentally appropriate, safe so transport system and increase the sectors economic efficiency, identify ways which investment, maintenance and operational 0 the transport infrastructure, together with policy measures and instruments of other kinds, can help to accomplish the measures aims of transport, environmental and regional policies, identify measures e.g. with a view to making public transport 0 — competitive which help to achieve the aims of transport, more — can environmental and regional policies to a greater extent than infrastructural measures alone, analyse the effects of various regional policy measures within the 0 communications sector, viewing those effects relation to the costs and to the extent to which the aim of regional balance has been achieved, identify which transport inputs can be reduced, subject to 0 ways

the desirability of free mobility and good communications,

analyse the effects of the development of information technology 0 and mobility needs, viewing these effects in relation to the expansion needs of transport infrastructure, identify which the planning and funding system for 0 ways

transport infrastructure investments can be adapted and improved,

partly in order to enhance the economic efficiency of the transport sector, recommend the main thrust of the revision of infrastructure 0 investment plans for the period 1998-2007, recommend which Sweden, within the context of EU co- 0 ways operation, help to frame a Common Transport Policy CTP can and, the context of work trans-European networks, can pursue on the introduction of an environmentally appropriate European system of transport, recommend measures capable of stimulating research and 0 development fields where the standard of knowledge needs to be elevated that transport system be developed which will be so a can sustainable in the long term.

Committee

terms of reference 21

Background

On 16th March 1994, the Riksdag resolved Prop. 1993/942100 Bil.

Bet. 1993/94:TUl6, Rskr. 1993/941154 that a Committee should be appointed to draw up a national plan for communications Sweden. The Riksdag stated that the basic must be for investments to concern

be given such a focus that we can achieve environmentally

an appropriate transport system which at the same time will contribute towards greater wellbeing and growth. The plan also to include

proposals for the long-term financing of communications.

The remit

The starting point for the inquiry consists of the 1988 Transport Policy

Resolution and the 1991 resolutions Enterprise Policy for Growth and

A Good Living Environment. especially important to analyse the extent to which the principle of the cost liability of transport and the sectorial responsibilities of the different types of traffic for the environment have led to more efficient utilisation of transport and the pursuit of a more environmentally appropriate system of transport. The Committee to propose ways of developing this principle further. In a holistic perspective, the Committee other things to among investigate transport use questions, environmental adjustment, infrastructure design and the focus of investment planning, the dimensioning of traffic and the IT sector. The Committees measures proposals will form the basis of a unitary draft resolution on communications policy. The Committee also to take as its starting point the Riksdag

Resolution on sustainable development Prop. 1993/94:11 Bet.

1993/94:JoU19, Rskr. 1993/94:256 and a sustainable transport system Prop. I993/94:100 Bil. Bet. 1993/94:TU16, Rskr. 1993/94:154, together with the investment plans for road and rail expansion adopted by the Government its resolution of 24th March 1994. In the light of the Riksdag Resolution investments transport on infrastructure and of the investment plans approved by the Government for investments roads, railways and county transport installations, the Committee to identify needed order to achieve measures a better integration than at present of shipping, air transport and information technology with the land transport system. The purpose of this inquiry for the system of communications to be directed towards an environmentally appropriate system of transport which will at the same time contribute towards greater wellbeing and

22 Committee terms of reference SOU 1996226

sustainable growth in the various parts of the country. Access to efficient communications also much question of wellbeing very a and distributive justice. The expression "environmentally appropriate system of transport" refers to of organising and carrying out passenger and goods a way transport operations within the frames defined by what human beings tolerate. and nature can Balances must therefore be struck the basis of political on deliberations. This applies, for example, to the relationship between the different types of traffic, availability, regional policy commitments and questions concerning finance and the apportionment of costs between the different types of communication. The Committee has therefore to analyse various scenarios in which environmentally appropriate traffic system whole geared to an as a

various prioritisations of the aims of transport policy. The of these prioritisations for the achievement of other goals

consequences of transport policy to be presented each scenario, as are each are scenarios distributive effects. The analysis should be undertaken the

light of various proposals for reducing emissions keeping with goals

defined by the Riksdag. The scenarios are to be accompanied by an account of the which the infrastructure should be expanded way during the next planning period 1998-2007. The Committee should also suggest the best way which Sweden contribute towards the framing of Common Transport Policy can a CTP within the European Union EU. Work also progress within the EU designing an integral, all-European transport on network. A network of this kind will facilitate integral transport

solutions based multiple transport. The Committee should identify

on

which Sweden strongly encourage the implementation of

ways can environmentally appropriate European transport system. an Furthermore, the Committee should analyse the consequences of the EU transport network for Swedens communications and transport system, well considering and recommending measures whereby as as Swedens communications will be suitably interlinked with the trans- European networks. One basic principle underlying the work of the Committee should

be that good communications the broad sense which are to be

pursued. An aim of this kind be accomplished various ways. can New and advanced technology, such information technology, can as provide opportunities for the enhancement of transport efficiency. Furthermore, each type of transport should be used the very context where has its advantages. From environmental viewpoint an important this respect that transport inputs be distributed to the can

Committee terms of reference 23

of transport which are economical of energy and in other ways means have low environmental impact. This means that several different a kinds of transport be used a single transport operation. In a can network of this kind, an important role played, for example, by terminals and nodal points the transport system. Reloading costs and transfer times can be minimised with efficient terminals the right locations. Multiple transport operations can then become an efficient alternative to operations using one type of transport only. Integration with information technology can also have the effect of enhancing the

quality of the services performed, while at the same time reducing

sacrifices of time, natural etc. The Committee should resources therefore investigate the feasibility and necessity of improved nodal points and development of new technology the Swedish goods and transport system and should recommend measures to be passenger taken. The efficiency improvement resulting from the introduction of information technology have restraining effect on the close can a connection between transport inputs and economic development. The Committee therefore to analyse whether this improved efficiency will affect the need for infrastructure capacity expansion. Evaluations of the investment plans of the transport utilities have shown the system of road and rail investment finance to be an imperfect of accomplishing the aims of transport policy, e.g. means those of environmental nature. The Committee therefore to an identify which the system of planning and finance can be ways adapted and improved so as to encourage an environmentally appropriate system of transport and so as to improve the economic efficiency and traffic safety of the transport sector. Owing to the change the length of time for which the Riksdag and other representative assemblies are elected, State investment plans for transport infrastructure will future be revised at four-yearly intervals. The Committee to analyse the need for changes the political basis of planning proposals at both national, regional and local levels. As regards the political basis at regional level, possible that changes will be introduced as a result of the ongoing deliberations of the Regional Government Commission C l992:06. The Committee should recommend which the ways Governments task of following up the investment resolutions should be carried out. Sustainable development depends on the pricing system containing accurate information consumption and benefit. The on resource preparation of national plan of communications, therefore, requires a external factors the national economy to be taken into account and

24 Committee terms of reference SOU l996:26

adjusted another. The Committee therefore to analyse one way or ways which charges the transport sector can be adapted so as to promote an environmentally appropriate transport system, enhance the economic efficiency of the transport sector and limit the use of finite of changed between fossil resources. The consequences price relations and renewable fuels should be illuminated. On instructions from the Government, the county administrations are preparing regional traffic and environmental analyses with a view to laying down guidelines for the long-term development of environmentally appropriate transport systems within the counties. The National Board of Housing, Building and Planning working, on the Governments instructions, with a national vision, addressing environmentally appropriate communications among other questions. A report, Sweden 2009, currently being circulated for comment. In the light of the work done by the county administrations and the National Board of Housing, Building and Planning, the Committee should analyse the feasibility of an environmentally appropriate transport system the various parts of Sweden and the connections between national plan of communications and the planning of an a environmentally appropriate transport system the larger conurbations and urban regions of Sweden. The Committee should also analyse ways which investments,

maintenance and operational measures within the transport

infrastructure and and instruments of other kinds can help to measures

accomplish the various aims of environmental, regional and transport

policies. The Committee to consider whether a change necessary the present allocation of responsibilities between national authorities involved the planning of communications. The possibilities of steering use of the transport system solely through infrastructure investments, however, are relatively limited, and the Committee therefore to identify measures which can help to achieve the aims of transport and environmental policy to a greater extent than infrastructure alone. Development of public measures transport and its competitive capacity can be an effective means to this end. This analysis will include recommendations concerning finance and possible steering instruments. The feasibility of regional development and of balance between regions be variously affected by the communications can measures sector. The Committee therefore to evaluate the effects of various regional policy within the communications sector, viewing measures those effects relation to the costs.

SOU 1996226 Committee terms of reference 25

One precondition of sustainable design of national

a communications plan that the measures proposed can be financed both the national and local government sectors. The Committee

therefore to consider and recommend ways of financing the various measures within the frames of national government finance already

decided on. Partly in the light of this analysis, the Committee to consider and recommend a national plan of communications based on a holistic approach to the transport system. An environmental impact assessment

to be prepared for the proposals. The thrust of the proposals must be

such that the plan will contribute towards the achievement of a safe, environmentally appropriate transport system while at the same time promoting wellbeing and growth the various parts of the country. The Committee also to consider and recommend measures to encourage research and development fields where the standard of knowledge needs to be elevated so that a transport system can be developed which will be sustainable the long term.

Further points

The Committee to keep itself informed of the work of the Traffic and Climate Committee K 1993:O1, the Commission on Further Development of the System of Environmental Classification for Cars etc. M 1993208, the Road Pricing Commission K 1994227, the Commission on the Feasibility of Greater Environmental Relation of

the Taxation System Fi 1994:11 and the Regional Government

Commission C 1992:06. The Committee also to keep itself informed of the work of the National Board of Housing, Building and Planning on a national vision and the work of the National Environmental Protection Agency on an environmentally appropriate transport system. In keeping with Dir. 1992250, the Committee to declare the regional policy implications of its proposals, and keeping

with Dir. 19942124 to declare the equal opportunities implications

of its proposals, as well as taking into account the Governments instructions to all committees and special investigators to scrutinise public commitments Dir. 1994223. A draft plan of national communications to be included the final report which the Committee to present by 1st December 1996 at the latest. An interim report setting out alternative and courses recommending the main thrust of infrastructure investments for the period 1998-2007 to be submitted to the Government on 15th

26 Committee terms of reference

January 1996. This interim report also to include any proposals for changes of political control at various levels of the planning system.

The Ministry of Transport and Communications

I n A. ’.

3, U‘ i 0

Heading for a new transport policy

Interim report the Government Commission on Transport and Communications

The focus of infrastructure How can we develop infrastructure for the next planning period 1998 2007 the direction an environmentally — appropriate transport system Proposals on the focus investments, operations and maintenance roads and railways.

Stronger political control How can political control the planning infrastructure be strengthened both regional and national levels Proposals on experimental activities Skane, Stockholm and Jamtland/Vasternorrland.

Evaluation of traffic policy How successful has traffic policy been hitherto Have utilities and authorities been able to live up to the traffic policy objectives defined, for example, the 1988 and 1991 resolutions Presentation the results an evaluation.

The Government Commission on Transport and Communications parliamentary committee which all the parliamentary a political parties represented. the final report, the are

Committee will be presenting proposals for a new transport

policy.