Bereich: B1 Job-Nr.: QUA0298- - 0085 – 6 »973077« Seite: 1 Rev.-Dat.: 29.04.98 Ausg.-Dat.: 29.04.98, 10:43:16 Uhr Höhe: 68,09 Setzer: KN, Farbe: CMYK WILFRIED PUWEIN ■ THE TRANSIT AGREEMENT: A PRELIMINARY ASSESSMENT In late 1997, the EU Commission performed its scheduled review of the Transit Agreement with Austria. The core of the Agreement, the ecopoints system for trucks, will continue to be effective until the end of 2000, when the European Environment Agency will carry out the next evaluation. At the start of 1998, Switzerland negotiated an accord with the EU on the transit of 40-ton trucks. Nevertheless, a sustainable solution to the problem of trans-Alpine transit is still lacking. In the course of its EU membership negotiations, Austria was able to achieve dero- gations with regard to road freight transit traffic. The “Transit Agreement” concluded back in 1992 was integrated, in the form of protocol no. 9, in the 1994 Treaty of Accession. The EU Council of Transport Ministers was charged with investigating by the end of 1997 whether the measures set out in the Agreement, and in particular the ecopoints system, would stand the test of practice. The basis for this work was a report by the Commission which was to study the effects on the free movement of goods and services, on environmental protection in the interest of the Community in general and on traffic safety. The Commission concluded “that the ecopoints system was a suitable and effective means to reduce pollution by trucks in transit through Austria” (European Commission, 1998). EFFORTS TO IMPROVE RAIL TRANSPORT AND REDUCE POLLUTION FROM ROAD FREIGHT TRANSIT In the past decades, the substantial increase of road traffic in the Alpine region has put a serious ecological burden on public health and the environment in general. Wilfried Puwein is economist at the Road haulage in particular gathered speed in the early 1970s (Figure 1). By 1975, Austrian Institute of Economic more goods were moved through Austria on the roads than by rail. The new motor- Research. The author wishes to ways across the Alps (Inn Valley, Brenner, Tauern, Pyhrn, Gleinalm) provided trucks thank Gunther Tichy for his valuable with a new and significant competitive edge over rail transport. International road suggestions and information. The data were processed and analyzed haulage contractors were initially able to fully exploit their advantage as the Austrian with the assistance of Federal Government willingly adapted its quotas for cross-border transport requir- Erna Kernreich. ing official approval to the constantly increasing demand. It was not until the people WIFO AUSTRIAN ECONOMIC QUARTERLY, 2/1998 85 85 ROT SCHWARZ Bereich: B1 Job-Nr.: QUA0298- - 0086 – 7 »973077« Seite: 1 Rev.-Dat.: 29.04.98 Ausg.-Dat.: 29.04.98, 10:43:17 Uhr Höhe: 68,09 Setzer: KN, Farbe: CMYK ■ TRANSIT AGREEMENT on transport (such as bans on night driving or lower speed Figure 1: Transit traffic in Austria limits; cf. box). The Transit Agreement imposes limits on the number of transit journeys. Other factors affecting transit development are tolls and bans on night driving. When Austria joined the EU, it became necessary to re- duce the road traffic contribution, introduced in 1978 for Austrian and foreign trucks alike, in stages from 86,400 ATS for one road train to 16,700 ATS in 1997, in order to comply with the requisite EU directive. At the same time, the toll for the Brenner motorway (some 70 percent of all ecopoints-rated transports are routed across the Brenner) was raised substantially. In 1988, a single truck ticket (from a 100 tickets carnet) cost 250 ATS; in 1996 it was 1,150 ATS during the day (for a noise- and pollution-controlled truck) and 2,300 ATS dur- ing the night (10 p.m. to 5 a.m.). A non-Austrian transit carrier running 200 transits a year (100 night trips) across living alongside the motorway in the Inn and Wipp valleys the Brenner consequently had to pay 111,400 ATS in began to articulate their protests against the noise and taxes and tolls in 1987, and 377,000 ATS in 1996. In ad- fumes of the trucks that a more restrictive quota policy was dition to this hefty increase, the ban on night driving for introduced. This in turn triggered resistance in the Eu- non-noise-controlled trucks imposed in 1980 and lower ropean Community whose policy it was to liberalize cross- speed limits similarly made a dent in the competitive posi- border road freight traffic. Negotiations finally produced tion of road haulage across Austria. an “Agreement between the Republic of Austria and the In their Transit Agreement, the EU and Austria undertook European Economic Community on the transit of goods by to increase rail capacities on the Brenner, Tauern, Pyhrn, road and rail” (Council Decision 92/577/EEC of 27 No- Schober pass and Danube routes. The national railways vember 1992). The purpose of the Agreement is to en- need to improve their supply of combined transport hance cooperation between the parties in key areas of modes; national subsidies of rates are permitted in order transport, in particular trans-Alpine traffic. To this end, rail to make combined rail & road transport competitive vis-à- transport and in particular combined transport modes are vis road haulage. to be promoted and road traffic regulated to protect pub- lic health and the environment1. HAVE THE MEASURES BEEN SUCCESSFUL? Measures are targeted at the following objectives: • develop a rail transit mode that is able to compete with The Commission was positively impressed by the eco- road haulage in terms of quantity, quality and pricing; points system in general. Now a detailed assessment is made as to whether the goals identified in the Transit • reduce the environmental burden (in terms of NO x Agreement have been met and, generally, whether the ac- emission – ecopoints system) imposed by the transit tual intentions of the Agreement could be realized. fleet of EU trucks by 60 percent; According to the ÖSTAT ecopoints statistics, the number • cap the number of annual EU transits at the 1991 level. of ecopoints transit runs never exceeded the agreed ceil- In addition to the restrictions specified in the Transit Agree- ings during 1993 to 1996. A remarkable factor is the low ment, transit traffic is affected by various measures that utilization rate of the runs available in 1993 and 1994 generally apply to road freight traffic in Austria, among (Table 1), which may be due to cyclically reduced trading them taxes and toll charges as well as special restrictions between Italy and the countries to its north. The fleet used for transit transports averaged considerably lower NOx 1 Brand – Schäfer (1996) provide a detailed description of the devel- emission rates than the ceilings provided for in the Transit opment and solution of the transit problem. Agreement (Table 2). The targets were similarly met in rail 86 AUSTRIAN ECONOMIC QUARTERLY, 2/1998 WIFO 86 ROT SCHWARZ Bereich: B1 Job-Nr.: QUA0298- - 0087 – 1 »973077« Seite: 1 Rev.-Dat.: 29.04.98 Ausg.-Dat.: 29.04.98, 10:43:18 Uhr Höhe: 68,09 Setzer: KN, Farbe: CMYK TRANSIT AGREEMENT ■ Taxes and regulations for road haulage in Austria which affect EU transit traffic July 1978 Road traffic contribution is introduced (e.g., 12-month fee for a vehicle with a payload of 24 tons: 57,600 ATS) January 1984 Road traffic contribution is raised (e.g., 12-month fee for a vehicle with a payload of 24 tons: 86,400 ATS) September 1987 Yearly toll card for trucks on the Brenner motorway is abolished (25,000 ATS) January 1988 Transit negotiations with EC are commenced February 1988 Carnet of 100 truck tickets (25,000 ATS) for the Brenner motorway is introduced December 1988 Ban on night driving (10 p.m. to 5 a.m.) for non-noise-controlled trucks on the Innkreis, Pyhrn, Tauern, Inn Valley, Brenner and Rhine Valley motorways. November 1990 Price for 100 truck tickets carnet for Brenner motorway is raised to 30,000 ATS January 1991 Price for 100 truck tickets carnet for Brenner motorway is raised to 45,000 ATS January 1992 Price for 100 truck tickets carnet for Brenner motorway is raised to 50,000 ATS and issued to noise-controlled trucks only January 1993 Transit Agreement enters into effect; ecopoints replace bilateral quotas for EU trucks of a to- tal weight in excess of 7.5 tons January 1995 Accession to the EU; no penalty for excess truck loads of up to 5 percent (total factual weight limit is 40 tons); general ban on night driving for non-noise-controlled trucks; road use fee replaces the road traffic contribution; 48,000 ATS as annual charge for vehicles of or ex- ceeding a maximum total weight of 18 tons July 1995 100 tickets truck carnet for Brenner motorway is abolished; price for single ticket is raised from 500 ATS to 1,000 ATS January 1996 Annual road use fee reduced to 32,000 ATS February 1996 Price for single ticket on the Brenner motorway is raised to 1,150 ATS for noise- and pollu- tion-controlled trucks; to 1,500 ATS for non-noise- and non-pollution-controlled trucks; and to 2,300 ATS for night runs January 1997 Annual road use fee reduced to 16,700 ATS End of 1997 Commission Report on the transit situation; the Council decides unanimously to extend the transit regulation January 1998 Electronic debiting of ecopoints is introduced Before January 2001 European Environment Agency is charged with assessing the transit regulation; Council will decide on its expiry by qualified majority End of December 2003 Transit Agreement will expire; the Acquis Communautaire to apply fully transport.